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_____________________________________________________________ A Guide to Solid Waste Management Planning

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A Guide to Solid Waste Management Planning

September, 2016 Version 1.0


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This Guide helps to clarify ministry policy and the provisions of the Environmental Management Act as

they relate to the management of municipal solid waste. This Guide is not a legal document and the

information in it does not constitute legal advice or impose any legally binding requirements. This Guide

does not replace the Act or any other applicable law. Any amendments to the Act, its regulations and

other legislation referred to in this Guide may affect provisions of this Guide; in the event of an

inconsistency, the Act or other applicable legislation will prevail. Ultimately regional districts should rely

on legal advice as necessary. Regional districts may contact the ministry if they have questions about

this Guide or its suggested approaches.

These materials contain information that has been derived from information originally made available by

the Province of British Columbia at: http://www.bclaws.ca/ and this information is being used in

accordance with the Queen's Printer License – British Columbia available at:

http://www.bclaws.ca/standards/2014/QP-License_1.0.html. THESE MATERIALS ARE NOT AN

OFFICIAL VERSION.

http://www.bclaws.ca/

http://www.bclaws.ca/standards/2014/QP-License_1.0.html


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Contents

Contents ..................................................................................................................... 3

Preface to 2016 Edition .............................................................................................. 6

Purpose and layout of the Guide..................................................................................... 6

Glossary of Terms ...................................................................................................... 7

A.1. Solid Waste Management in British Columbia ............................................. 11

A.1.1. The 5 R pollution prevention hierarchy .............................................................. 12

A.2. Provincial Direction for Solid Waste Management in B.C. ........................... 14

A.2.1. Legislative requirements ..................................................................................... 14

A.2.2. Provincial principles for solid waste management ............................................. 16

A.2.3. Targets for waste reduction ................................................................................ 17

A.2.4. Considerations for Small, Rural Regional Districts .............................................. 18

B.1. Step 1: Initiate the Planning Process ........................................................... 20

B.1.1. Initiate the plan update ...................................................................................... 20

B.1.2. Establish planning teams and committees ......................................................... 22

B.1.3. Design the consultation process ......................................................................... 24

B.1.4. Develop the budget ............................................................................................ 26

B.2. Step 2: Set the Plan Direction ...................................................................... 27

B.2.1. Identify principles, goals and targets .................................................................. 27

B.2.2. Prepare background information ....................................................................... 28

B.2.3. Assess the current solid waste management system ......................................... 28

B.2.4. Consider trends affecting solid waste management .......................................... 30

B.2.5. Consult the public ............................................................................................... 30

B.3. Step 3: Evaluate Options ............................................................................. 31

B.3.1. Develop potential strategies ............................................................................... 31

B.3.2. Assess the financial and administrative implications ......................................... 31

B.3.3. Consult the public and interested parties on the options .................................. 32

B.4. Step 4: Prepare and Adopt the Plan ............................................................ 33

B.4.1. Prepare draft plan ............................................................................................... 33

B.4.2. Consult the public on the draft plan ................................................................... 34

B.4.3. Prepare final draft for submission ...................................................................... 35

B.4.4. Ministry review and approval ............................................................................. 36

B.4.5. Final adoption ..................................................................................................... 37

C.1. Plan Implementation .................................................................................... 38

C.1.1. Dispute resolution ............................................................................................... 39

C.2. Compliance and Enforcement ...................................................................... 39

C.3. Plan Monitoring and Reporting .................................................................... 40

C.3.1. Plan monitoring advisory committee .................................................................. 40

C.3.2. Annual reporting ................................................................................................. 40

C.3.3. Five-year effectiveness review ............................................................................ 41


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C.4. Plan amendments and 10 year plan renewal .............................................. 42

C.4.1. Major amendments to the plan .......................................................................... 42

C.4.2. Minor amendments to plan schedules ............................................................... 43

C.4.3. Renewing a solid waste management plan ........................................................ 43

D.1. Template: Solid Waste Management Plan .................................................. 45

D.1.1. Guiding principles ............................................................................................... 47

D.1.2. Pollution prevention hierarchy and targets ........................................................ 47

D.1.3. Background ......................................................................................................... 48

D.1.4. Plan history ......................................................................................................... 48

D.1.5. Plan area ............................................................................................................. 48

D.1.6. Waste generation and management .................................................................. 49

D.1.7. Goals and Strategies ........................................................................................... 50

D.1.8. Finance and Administration ................................................................................ 52

D.1.9. Conclusion ........................................................................................................... 53

D.1.10. Plan Implementation .................................................................................. 53

D.1.11. Plan Schedules............................................................................................ 56

D.1.12. Non-Plan Schedule ..................................................................................... 57

D.2. Template: Consultation Report .................................................................... 59

D.2.1. Introduction ........................................................................................................ 61

D.2.2. Background and Consultation Objectives ........................................................... 61

D.2.3. Plan Initiation ...................................................................................................... 61

D.2.4. Advisory Committee ........................................................................................... 61

D.2.5. Public Consultation Design ................................................................................. 62

D.2.6. Participation ........................................................................................................ 62

D.2.7. Promotion and Advertising ................................................................................. 63

D.2.8. Feedback during Public Consultation Process .................................................... 63

D.2.9. Preferred Strategies ............................................................................................ 63

D.2.10. Plan Implementation .................................................................................. 63

D.2.11. Appendices ................................................................................................. 64

D.3. Template: Certification from Corporate Officer ............................................ 65

F.1. The Public Consultation Process ................................................................. 70

F.1.1. The requirement for consultation ...................................................................... 70

F.1.2. Stages and timing of consultation....................................................................... 72

F.1.3. Engagement techniques ..................................................................................... 74

F.2. Advisory Committees ................................................................................... 76

F.3. Advisory committee membership ................................................................. 76

F.3.1. Terms of reference for advisory committees ..................................................... 77

F.3.2. Sample terms of reference for public and technical advisory committees........ 78

F.3.3. Sample terms of reference for plan monitoring advisory committee................ 80

G.1. Roles and Responsibilities for Solid Waste Management Planning ............ 83

G.2. Steps in Solid Waste Management Planning ............................................... 85

G.3. Checklist for Plan Review and Approval ...................................................... 87


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G.4. Operational Certificates and Licences ......................................................... 90

G.4.1. Operational certificates ...................................................................................... 90

G.4.2. Licences ............................................................................................................... 90

G.5. Dispute resolution procedures ..................................................................... 91

H.1. Sample Solid Waste Management Strategies ............................................. 94

H.1.1. Introduction ........................................................................................................ 94

H.1.2. Reduction and reuse ........................................................................................... 94

H.1.3. Recycling ............................................................................................................. 95

H.1.4. Organics management and processing ............................................................... 96

H.1.5. Resource recovery .............................................................................................. 97

H.1.6. Residual management ........................................................................................ 97

H.1.7. Supporting activities ........................................................................................... 97

H.2. Evaluation Criteria Considerations ............................................................... 98

Figures

Figure 1: 5 R pollution prevention hierarchy ................................................................ 13

Figure 2: Circular economy .......................................................................................... 14

Figure 3: The planning cycle ........................................................................................ 19

Figure 4: Public Advisory and Technical Advisory Committees .................................. 23

Figure 5: Plan Development as an Iterative Process................................................... 28

Tables

Table 1: Interested parties (sample) ............................................................................ 24

Table 2: Legislation and regulations governing municipal solid waste. ....................... 66

Table 3: Sample consultation process ......................................................................... 72

Table 4: Sample engagement techniques ................................................................... 74

Table 5: Membership of the Public Advisory and Technical Advisory Committees ..... 76

Table 6: Roles in solid waste management planning .................................................. 83

Table 7: Steps in solid waste management planning ................................................. 85

Table 8: Checklist for review and approval of plans .................................................... 87


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Preface to 2016 Edition This document is the Province of British Columbia’s guidance document (Guide) for

the development of solid waste management plans by regional districts. The 2016

Guide replaces the 1994 Guide to the Preparation of Regional Solid Waste

Management Plans for Regional Districts.

The 1994 guidance document supported regional districts in developing solid waste

management plans for their region. The recommended process for developing plans

for the most part remains the same, including establishing advisory committees,

setting regional targets, reviewing the existing waste management system and

identifying strategy options. Annual reporting and five-year effectiveness reviews are

still recommended. Legislative requirements for public review and consultation on the

development, amendment and final content of a plan remain the same.

New recommendations include the renewing of plans every 10 years, and for plans to

be living documents incorporating the use of schedules that could require minor

amendments within those 10 years. The Guide provides increased clarity on planning

requirements and recommendations. It provides regional districts with flexibility in how

they meet legislated public consultation requirements and adaptable

recommendations to suit local circumstances. The Guide includes a set of template

documents and appendices that facilitate a more streamlined process for plan

development and approval.

This document is provided as guidance. Regional districts may choose to approach

their planning process and document submissions differently; this is acceptable as

long as legislative requirements are met.

Purpose and layout of the Guide

This Guide is intended to help regional districts create, amend or renew plans to meet

their region’s needs, as well as provincial requirements.

The Guide is laid out in eight parts which set out requirements and recommendations

for solid waste management planning, and provide templates and additional

information which may be useful.

Part A includes an introduction to solid waste management and the legislative

requirements and provincial objectives for solid waste management in B.C.

Part B sets out the four-step planning process.

Part C describes plan implementation, monitoring and reporting, as well as

plan reviews and amendments.

Part D includes template documents.

Parts E - H are a series of appendices that provide additional detail.


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Glossary of Terms Most of the definitions in this document are those taken from the Environmental

Management Act or its regulations [identified in square brackets]. Other definitions

have been developed for the purpose of this Guide only.

Advisory committee: A committee established to support the development of the

solid waste management plan or the implementation of the plan. May include a public

advisory committee, technical advisory committee and a plan monitoring advisory

committee

Approved plan: A solid waste management plan approved under section 24 (5) of the

Environmental Management Act

Circular economy: An alternative to a traditional linear economy (make use

dispose). The circular economy keeps resources in use for as long as possible,

extracts the maximum value from them while in use, then recovers and regenerates

products and materials at the end of their service life1

Collection facility [Recycling Regulation, B.C. Reg. 449/2004]: A facility for collecting

products and materials. May also be described as a “depot” in a plan.

Composting [Organic Matter Recycling Regulation, B.C. Reg. 18/2002]: The

controlled biological oxidation and decomposition of organic matter

Composting facility [Organic Matter Recycling Regulation, B.C. Reg. 18/2002]: A

facility that processes organic matter to produce compost

CRD: Construction, renovation, and demolition waste. This definition includes land

clearing waste. Also sometimes referred to in literature as DLC (Demolition, Land

Clearing and Construction)

Director: A person employed by the government and designated in writing by the

minister as a director of waste management or as an acting, deputy or assistant

director of waste management

Disposal [Hazardous Waste Regulation, B.C. Reg. 63/88]: The introduction of waste

into the environment through any discharge, deposit, emission or release to any land,

water or air by means of facilities designed, constructed and operated so as to

minimize the effect on the environment

Downstream environmental impacts: Impacts created by the use of a product after

its useful life

EMA: The Environmental Management Act, S.B.C. 2003, c 53

1 WRAP and the circular economy http://www.wrap.org.uk/content/wrap-and-circular-economy, accessed January 14, 2016.

http://www.wrap.org.uk/content/wrap-and-circular-economy


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Extended Producer Responsibility (EPR): A management system based on

industry and consumers taking life-cycle responsibility for the products they produce

and use. Referred to as “product stewardship” under the B.C. Recycling Regulation2

Hauler [EMA]: A person who picks up, delivers, hauls or transports municipal solid

waste or recyclable material on a commercial basis (note under EMA the term ‘Waste

Hauler’ is defined in section 26 for the purpose of section 26 only)

Hauler licence [EMA]: A licence issued by a regional district to a hauler, under the

authority of a bylaw made under EMA section 25(3) (h) (i)

ICI: Industrial, commercial and institutional waste

Interested parties: Organizations, agencies and individuals with an interest in the

planning process. This includes governments (including First Nations), private sector

interests, non-government and community organizations, and the public at large

Manage or management: Includes the collection, transportation, handling,

processing, storage, treatment, utilization and disposal of any substance

Minister: The B.C. Minister of Environment

Ministry: The B.C. Ministry of Environment

Municipal solid waste (MSW) [EMA]:

a) refuse that originates from residential, commercial, institutional, demolition,

land clearing or construction sources, or

b) refuse specified by a director to be included in a waste management plan

Municipality: This Guide uses the generally accepted definition of “municipality” as

an incorporated area that is democratically elected, autonomous, responsible and

accountable. Municipalities are members of the regional district in which they are

located. (Note that section 1 of EMA defines “municipality” as including regional

districts)

Operational certificate (OC) [EMA]: A certificate issued under section

28 [operational certificates] for the design, operation, maintenance, performance and

closure of sites or facilities used for the storage, treatment or disposal of waste or

recyclable material

Pollution Prevention Hierarchy: The 5 R provincial pollution hierarchy more fully

described in Part A.1.1 of this Guide

Processing: Any activity necessary for preparing a component of the solid waste

stream for reuse, recycling, recovery or residual management

Product stewardship: see Extended Producer Responsibility (EPR)

Recovery: The reclaiming of recyclable components and / or energy from the solid

waste stream by various methods including but not limited to manual or mechanical

2 The EMA’s Recycling Regulation confers product stewardship with the same meaning as extended producer responsibility. Other jurisdictions may apply a different meaning to this term. For more information see http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/product-stewardship

http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/product-stewardship



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sorting, incineration, distillation, gasification, or biological conversion other than

composting

Recyclable: In this Guide, refers to a product or substance, after it is no longer usable

in its present form that can be diverted from the solid waste stream. (Note that

"recyclable material" has a more specific definition in the EMA)

Recycler licence [EMA]: A licence issued by a regional district, under the authority of

a bylaw made under EMA section 25(3) (h) (i), to the owner or operator of a site that

accepts and manages recyclable material

Recycling: The collection, transportation and processing of products that are no

longer useful in their present form and the subsequent use, including composting, of

their material content in the manufacture of new products for which there is a market

Reduction or reduce: Decreasing the volume, weight or toxicity of municipal solid

waste generated at source. Includes activities which result in more efficient reuse or

recycling of primary products or materials, but does not include only compacting or

otherwise densifying the waste

Regional director: Regional Director, Environmental Protection Division of the

Ministry of Environment, or someone designated to carry out authorization duties on

behalf of the Regional Director

Regional district [EMA section 25(1)]:

(a) a regional district as defined in the Local Government Act,

(a.1) except in section 26, the Northern Rockies Regional

Municipality, or

(b) the Greater Vancouver Sewerage and Drainage District constituted under

the Greater Vancouver Sewerage and Drainage District Act

Residual management: The disposal in accordance with the EMA of what remains in

the solid waste stream following reduction, reuse, recycling and recovery activities

Reuse: At least one further use of a product in the same form (but not necessarily for

the same purpose)

Site [EMA]: Any site, including those identified specifically or by class, in an approved

waste management plan for the management of municipal solid waste or recyclable

material. (Note under EMA this term is defined in section 25 for the purpose of section

25 only)

Solid waste management system: The aggregate of all sites and facilities, services

and programs for managing municipal solid waste within a region

Solid waste stream: The aggregate of all municipal solid waste and recyclable

materials, and the process through which they move from generation to utilization or

disposal

Triple Bottom Line: Economic, environmental and social cost considerations

Upstream environmental impacts: Impacts from the creation and transportation of a

product to where it is used

http://www.bclaws.ca/Recon/document/ID/freeside/96323_30

http://www.bclaws.ca/civix/document/id/complete/statreg/56059_01


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Waste management facility (facility) [EMA]: A facility for the treatment, recycling,

storage, disposal or destruction of a waste, or recovery of reusable resources

including energy potential from waste

Waste management plan [EMA]: A plan that contains provisions or requirements for

the management of recyclable material or other waste or a class of waste within all or

a part of one or more municipalities

Waste stream management licence [EMA]: A licence issued by a regional district,

under the authority of a bylaw made under EMA section 25(3) (h) (i), to the owner or

operator of a site that accepts and manages municipal solid waste

Zero Waste approach: as both a philosophy and a goal, aims to reduce and

ultimately eliminate garbage


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A. Introduction

A.1. Solid Waste Management in British Columbia Welcome to British Columbia’s Guide to Solid Waste Management Planning. This

Guide is intended for use by regional districts who are updating or amending3 their

solid waste management plan and for interested parties engaged in this process.

Approximately 2.4 million tonnes of municipal solid waste was disposed of in B.C. landfills in 2014,

equivalent to 520 kg per person4. While there has been an overall decrease in municipal solid waste

disposal rates since the 1990's, much of the waste disposed of could be reduced (by not being

generated in the first place), repurposed, composted or recycled.

Waste reduction efforts will become more and more important as the B.C. population continues to

increase, landfills approach their capacity for receiving new waste, and the mandate to reduce

greenhouse gas emissions from waste disposal grows.

For additional information on solid waste management in British Columbia (B.C.), please refer to the

Ministry of Environment (ministry) waste management website.

The Environmental Management Act mandates regional districts to develop plans for

the management of municipal solid waste and recyclable materials. Solid waste

management planning is a proven way to reduce the amount of solid waste requiring

disposal in a region, contributing to protection of the environment. B.C. has made

significant strides in recent years, with some regional districts reporting a disposal rate

of less than 350 kg per person annually.5

Solid waste management in B.C. is continuously evolving, necessitating updating of

solid waste management plans to reflect these changes. Today:

B.C.’s population is growing, meaning that more waste will be generated and

require disposal; however, new disposal sites are difficult to establish, partly due

to citizens concerned about the potential and demonstrated impacts of various

means of disposal, as well as the increased requirements for proper handling that

may also restrict certain sites

British Columbians are increasingly conscious of the need to “reduce and reuse”

and many communities have set the goal of reducing to zero waste through a

variety of measures

A growing number of product stewardship programs exist in B.C. to take

responsibility for end-of-life product management

3 The ministry recommends that regional districts renew their solid waste management plans every 10 years. It may also be necessary to amend the plan before this time if there are significant changes (see Section C.4 of this Guide). 4 Environmental Reporting BC http://www.env.gov.bc.ca/soe/indicators/sustainability/municipal_solid_waste.html?WT.ac=LU_waste#fn4 (accessed September 8, 2016) 5 Environmental Reporting BC http://www.env.gov.bc.ca/soe/indicators/sustainability/municipal_solid_waste.html?WT.ac=LU_waste#fn4 (accessed January 17, 2016)

http://www.env.gov.bc.ca/soe/indicators/sustainability/bc-population.html

http://www.env.gov.bc.ca/soe/indicators/sustainability/bc-population.html

http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/municipal-waste-management-plans

http://www.env.gov.bc.ca/soe/indicators/sustainability/municipal_solid_waste.html?WT.ac=LU_waste#fn4

http://www.env.gov.bc.ca/soe/indicators/sustainability/municipal_solid_waste.html?WT.ac=LU_waste#fn4


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Private sector innovation is playing a progressively significant role in the collection

and management of waste

“Waste” is increasingly being viewed as a resource; products that were once sent

to landfills are now carefully collected for reuse, recycling and / or recovery

New waste management and recycling technologies are creating opportunities,

with associated job creation and economic benefits

In 2013, British Columbia’s total greenhouse gas emissions were 64.0 million tonnes of CO2e6.

Approximately 7.5% of this comes from the waste sector.7

Reducing greenhouse gas emissions from waste is an important goal for all levels of

government. Waste reduction, reuse and recycling can reduce greenhouse gas

emissions both by lowering the demand for new materials and products (reducing

upstream environmental impacts) and by minimizing downstream environmental

impacts such as transporting waste over long distances and disposing of it in landfills.

Other factors that influence greenhouse gas emissions associated with solid waste

disposal include the waste composition, the mass disposed per year, precipitation

rates at landfills, landfill gas systems (flaring, capture, oxidation beds, etc.), and

landfill waste management (aeration, turned piles, etc).

Emissions of methane (a greenhouse gas) from landfills can be significant; as a result,

legislation requires large landfills to capture landfill gas.8

A.1.1. The 5 R pollution prevention hierarchy

The 5 R pollution prevention hierarchy (Reduce, Reuse, Recycle, Recover, Residuals

Management) is a useful tool for regional districts to use when looking at opportunities

to improve their solid waste management system (see Figure 1).

The order of preference in the pollution prevention hierarchy is for waste management

at one level to only be undertaken when all feasible opportunities for pollution

prevention at a higher level have been taken. For example, opportunities for recycling

should be explored only after all opportunities for reduction and reuse of materials

have been exhausted. There are benefits to this approach.

Actions taken at higher levels in the pollution prevention hierarchy can eliminate

or reduce the environmental management costs of actions at lower levels. For

example, waste prevention programs can reduce costs associated with handling

wastes in the first place.

The pollution prevention hierarchy can potentially reduce the environmental

impacts of product manufacturing and distribution. For example, reuse, and to a

lesser extent recycling, will reduce the environmental impact of extracting and

6 CO2e: carbon dioxide equivalent 7 The waste sector category includes land waste, wastewater handling and waste incineration. For more information on B.C.’s greenhouse gas emission inventory see http://www2.gov.bc.ca/gov/content/environment/climate-change/reports-data/provincial-ghg-inventory-report-bc-s-pir 8 For more information on the Landfill Gas Management Regulation see http://www.env.gov.bc.ca/epd/codes/landfill_gas/.

http://www2.gov.bc.ca/gov/content/environment/climate-change/reports-data/provincial-ghg-inventory-report-bc-s-pir

http://www2.gov.bc.ca/gov/content/environment/climate-change/reports-data/provincial-ghg-inventory-report-bc-s-pir

http://www.env.gov.bc.ca/epd/codes/landfill_gas/


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processing primary resources while the use of recycled material can reduce the

energy cost of manufacturing new products.

Adherence to the highest level of performance under the pollution prevention

hierarchy can encourage innovation and investment by industry to improve

product design and reduce waste.

Figure 1: 5 R pollution prevention hierarchy

Although regional solid waste management planning has limited ability to influence

upstream environmental impacts from producing products, it can help raise

awareness of upstream environmental impacts and emerging approaches to minimize

these impacts9 . In addition, solid waste management planning should focus on

reducing and reusing products as a prime strategy to sustain products’ embodied

energy and material value. Plans should also aim to minimize the downstream

environmental impacts associated with managing products at end-of-life. Applying

the pollution prevention hierarchy can minimize downstream environmental impacts in

combination with other targeted facility / technology standards.

The pollution prevention hierarchy supports a circular economy approach (see

Figure 2) which can create jobs, promote innovation that provides a competitive

advantage and help to protect people and the environment.

9 Including preventing waste through new and innovative business models or through improved design – either for disassembly or for longevity. For more information on circular economy approaches see: http://www.nzwc.ca/circular-economy/Pages/default.aspx

http://www.nzwc.ca/circular-economy/Pages/default.aspx


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Figure 2: Circular economy10

A.2. Provincial Direction for Solid Waste Management in B.C.

A.2.1. Legislative requirements

Solid waste management planning and implementation is governed by the

Environmental Management Act (EMA) (Part 3, Sections 23-38).

The EMA requires a regional district to develop a solid waste management plan for

approval by the minister. The minister:

Must be satisfied that there has been adequate public review and consultation11

during the development of the solid waste management plan before approving the

plan

May approve all or part of a waste management plan, or an amendment to an

existing plan

May set conditions for approval, may choose not to approve the plan, or may

order that an existing plan be cancelled or amended

10 Image from Sustainable Solid Waste Management & the Green Economy, International Solid Waste Association, 2013. http://www.iswa.org/ ; See https://www.ellenmacarthurfoundation.org/circular-economy/interactive-diagram for an additional graphic 11 See Section B.1 for discussion of “adequate” consultation and Part F of this Guide for or consultation practices

http://www.bclaws.ca/civix/document/LOC/complete/statreg/--%20E%20--/Environmental%20Management%20Act%20%5bSBC%202003%5d%20c.%2053/00_Act/03053_03.xml#part3

http://www.iswa.org/

https://www.ellenmacarthurfoundation.org/circular-economy/interactive-diagram

https://www.ellenmacarthurfoundation.org/circular-economy/interactive-diagram


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An approved solid waste management plan authorizes a regional district to manage

municipal solid waste and recyclable material in accordance with the plan, including

through any conditions set out in operational certificates, permits or local bylaws.

Regional districts can make bylaws regulating the management of municipal solid

waste and recyclable material and can set fees for disposal. Any plan-implementing

bylaw deriving authority from the EMA must be approved by the minister before

adoption. A regional district is required to undertake consultation on such bylaws12

.

The Local Government Act and Community Charter also provide regional districts with

authorities to establish a service for the regulation, storage and management of

municipal solid waste and recyclable material.

While municipalities are not required to develop solid waste management plans, they

contribute to the regional solid waste management plan and may manage municipal

solid waste and recyclable material, including through their own local bylaws.

The private waste management services sector commonly provides waste collection,

diversion, recycling and disposal services for regional districts and municipalities

through contracting of municipal collection services, and plays a key role in providing

services for the industrial, commercial and institutional (ICI) sector. Authorizations

may be required under the EMA, including through a solid waste management plan, or

through regional district or municipal bylaws where applicable.

Part E of this Guide provides more detailed information on legislative requirements,

and other legislation and regulations that may impact solid waste management

planning and implementation.

Requirements for public consultation

Section 27 of EMA requires that “a process for comprehensive review and

consultation with the public respecting all aspects of the development, amendment

and final content of a waste management plan” takes place prior to the minister’s

approval. This requirement is important because there is no mechanism to appeal a

plan once approved by the minister. Part F of this Guide provides consultation

considerations and best practices that should be employed for adequate consultation.

The Local Government Act and Community Charter require approval of electors for the borrowing of

funds necessary to finance any capital works. Provisions of the EMA allow local governments to borrow

money without the approval of electors for implementation of an approved plan; therefore, the public

consultation process must provide opportunities for elector participation during the development and

amendment of a plan. The ministry responsible for community development may approve loan

authorization bylaws under a plan, provided that:

the plan has been approved by the minister

the plan is reasonably current (i.e., amended or reviewed within the last five years)

the capital projects being borrowed for are identified in the plan, and

the capital costs related to these projects are identified in the plan

12 The minister considers the outcome of consultation in making decisions on bylaws requiring approval.


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A.2.2. Provincial principles for solid waste management

A solid waste management plan provides regional districts—and their residents and

businesses—with clear direction on how they will achieve shared solid waste goals.

Eight guiding principles13

with illustrative descriptions are provided for regional

districts to follow in developing their solid waste management plan. Regional districts

should include additional locally-relevant guiding principles in their solid waste

management plans.

1. Promote zero waste approaches and support a circular economy

Encourage a shift in thinking from waste as a residual requiring disposal, to waste as

a resource that can be utilized in closed-loop systems. Zero waste approaches aim

to minimize waste generation and enable the sustainable use and reuse of products

and materials. At the local level, look to remove barriers or encourage opportunities

that will contribute to towards the establishment of a circular economy.

2. Promote the first 3 Rs (Reduce, Reuse and Recycle)

Elevate the importance of waste prevention by prioritizing programming and provision

of services for the first 3 Rs in the 5 R pollution prevention hierarchy (see Figure 1

of this Guide). Implement programs and services that consider provincial and regional

targets for waste reduction and environmental protection. Encourage investments in

technology and infrastructure, and ensure they occur as high up on the hierarchy as

possible.

3. Maximize beneficial use of waste materials and manage residuals

appropriately

Technology, best practices and infrastructure investments should continue to develop

to recover any remaining materials and energy from the waste stream, and to manage

residuals for disposal.

4. Support polluter and user-pay approaches and manage incentives to

maximize behaviour outcomes

Producer and user responsibility for the management of products can be supported

through the provision of market-based incentives, disposal restrictions on industry-

stewarded products, zoning to support collection facilities, and support for reuse and

remanufacturing businesses. Education and behaviour change strategies aimed at

consumers and businesses will help foster further waste reduction, reuse and

recycling. For example, user fees can be managed as incentives to increase waste

reduction and diversion.

5. Prevent organics and recyclables from going into the garbage wherever

practical

Maintaining a system to prevent organics and recyclables from going into the garbage

will provide clean feedstock of greater economic value as well as a potential end

product use to the recycling industry, while reinforcing behaviour to reduce, reuse and

13 Order of principles not indicative of prioritization unless otherwise noted.


17

recycle. Innovation in separation solutions, establishment and enforcement of disposal

restrictions or other creative means will influence this approach.

6. Collaborate with other regional districts wherever practical

Collaboration on many aspects of solid waste management (e.g., to access facilities

and markets, share campaigns and programs) will support the most efficient and

effective overall municipal solid waste system.

7. Develop collaborative partnerships with interested parties to achieve

regional targets set in plans

Strengthen partnerships with interested parties to achieve regional targets. All waste

and recycling sector service providers, associations, and environmental organizations,

product stewardship producers and agencies, and waste generators are key

interested parties in achieving these targets. Cooperative efforts will optimize

successful outcomes. Encourage a marketplace that will complement stewardship

programs and drive private sector innovation and investment towards achievement of

targets.

8. Level the playing field within regions for private and public solid waste

management facilities

Solid waste management facilities within a given region should be subject to similar

requirements. A consistent set of criteria14

should be used to evaluate the waste

management solutions proposed by private sector and by a regional district or

municipality.

A.2.3. Targets for waste reduction

The Ministry of Environment has established provincial solid waste management

targets that set a direction for regional districts to follow and allow for performance

measurement at the provincial level. These targets are adjusted from time to time to

reflect current realities and public expectations. The most recent information on

provincial targets can be found on the Municipal Waste Management Plans website.15

Regional districts should set appropriate regional targets that are

achievable

time-bound

demonstrate continuous improvement over time

Regional district target timelines do not need to align with provincial target timelines

(e.g., it may be appropriate to set a 5- or 10-year target locally despite the provincial

target date).

14 See Part H of this Guide for example criteria to draw upon 15 http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/municipal-waste-management-plans




18

As of 2013, the ministry has set two provincial targets for 2020:16

- Lower the municipal solid waste disposal rate to 350 kg per person per year

- Have 75% of B.C.’s population covered by organic waste disposal restrictions

These targets were developed after the ministry reviewed provincial disposal data from 2012 and 2013 to

see the current state and general trend. Through an analysis of current solid waste management plans in

B.C. and consideration of future targets set in plans, the ministry determined that these provincial targets

are achievable. Regional districts may set locally relevant targets, including regional municipal solid

waste disposal rates.

A similar process will be used to determine new long-term provincial targets as the 2020 target date

approaches, i.e.,

a) review current state and existing trends

b) analyze current solid waste management plans in B.C. and local targets set within them

c) based on this information, define achievable interim and long-term targets

The ministry may look to set aspirational provincial targets aimed at promoting continuous improvement

for those regional districts who have achieved and surpassed the provincial target for waste disposal.

A.2.4. Considerations for Small, Rural Regional Districts

Small and rural regional districts have distinct challenges when it comes to municipal

solid waste management. Their populations are more dispersed and fewer in number,

leaving them without economies of scale for cost effective servicing. Regional district

resources may be primarily focused on improving the solid waste infrastructure and

services, leaving fewer resources available to implement zero waste approaches.

While the legislative requirements outlined in this Guide are applicable to all regional

districts, the solid waste management plans, regional targets, and programs should

align with regional district capabilities and local opportunities. Flexibility regarding the

guidance on solid waste management planning is built into this Guide - the ministry’s

expectation is that regional districts provide rationale for their decisions related to

reviewing and amending or renewing their solid waste management plan.

16 Provincial targets are subject to change over time. Please refer to current ministry information for the most up-to-date provincial targets.


19

B. The Four-step Planning Process

The four-step planning process is shown in Figure 3.

Figure 3: The planning cycle

Step 1: Initiate the planning process, including setting the scope, notifying interested

parties, establishing advisory committees, and identifying the planning and

consultation processes.

Step 2: Set the plan direction, including establishing principles, goals and targets,

gathering background information, and identifying options for waste management.

Step 3: Evaluate options, including reviewing options for managing all forms of waste,

consulting with interested parties (including the general public), and determining

proposed approaches.

Step 4: Prepare and adopt the plan, including submission of the final plan for

minister’s approval.

Consultation is not shown as a separate step in the planning process as it

should be undertaken across all steps.

Regional districts may not need or desire to go through four distinct steps in their

planning process. However, they should demonstrate that they have undertaken a

comprehensive process. Unlike the past, regional districts will not be requested to

“check in” with the ministry when moving from one step to the next.

Plan implementation, monitoring and reporting takes place after adoption of the

plan and continues until such time as the plan requires amendment or renewal.


20

B.1. Step 1: Initiate the Planning Process

The first step is to initiate the

planning process by setting the

scope, passing a Board resolution

to update the plan, notifying

interested parties, establishing the

planning team and committees,

designing the consultation

process and establishing a

budget.

B.1.1. Initiate the plan update

A solid waste management plan is a blueprint for the management of municipal solid waste and

recyclable material in the region that identifies regional issues for the next 20 to 25 years while planning

for the next 10 years.

All regional districts in B.C. have a solid waste management plan in place, so this

Guide focuses on updating or amending an existing plan. The updated plan may be

able to draw extensively from the existing plan, or it may be necessary to significantly

adjust it. Part D of this Guide includes a suggested template for a solid waste

management plan; this can be altered to meet local needs.

Part G of this Guide identifies the roles and responsibilities of the various people and

organizations involved with updating a solid waste management plan.

Step 1: Initiate the Planning Process

Initiate the plan update Regional district Board resolution to initiate the planning process

Identify the plan area

Identify scope of work

Notify interested parties and the ministry

Establish planning team and committees Establish the planning team

Establish advisory committee(s)

Design consultation plan Design the consultation process

Public advisory committee provides input into the design of the public consultation process

Ensure public consultation requirements will be addressed

Develop the budget Develop budget for planning process


21

Resolution to update a plan

The plan process begins when a regional district Board passes a resolution to develop

or update a solid waste management plan. Oversight of this process may then pass to

the appropriate committee of the Board (and staff).

A typical resolution might be:

“That the regional district of AA begin the process of updating the solid waste

management plan for the entire regional district (including the municipalities of BB and

CC), and direct staff to notify the public of its intention to amend the plan and begin a

process of consultation on proposed plan amendments.”

Plan area

The plan area typically includes a single regional district (see box below).

Note that for waste management, “regional district” includes the Northern Rockies Regional Municipality

and the Greater Vancouver Sewerage and Drainage District (Metro Vancouver). The Comox Valley

Regional District and the Strathcona Regional District manage waste under a combined Comox

Strathcona Waste Management Service.

In some circumstances, it may be desirable for two or more regional districts to create

a shared solid waste management plan. At the very least, regional districts may wish

to ensure consistency between their plans, especially where there are opportunities to

strengthen goals and strategies. Working collaboratively could create some

advantages:

Regional districts sharing a solid waste management plan could look beyond

political boundaries to better enable planning for infrastructure and access to

markets so as to capitalize on travel corridors and economies of scale

Targets could be set for the whole plan area, and budgets, programs,

infrastructure, strategies etc. could be shared, which may result in lower costs

Reporting of municipal solid waste disposal rates could happen at the plan level

rather than at the regional district level17

Regional districts considering this approach should involve ministry staff early on in

the process.

Scope of work

The regional district should determine what aspects of the existing solid waste

management plan will be changed (or not). Any aspects of the solid waste

management system that will remain unchanged (e.g., the landfill will remain the

same) may be out of scope for strategy options and discussion purposes. Information

on items that will remain unchanged should still be referenced in the plan to provide

opportunity for comment on the whole system during the public consultation process.

Notification to interested parties

Notifications, with a copy of the regional district resolution, should be sent to all

interested parties (see box below). This initial notification states that the plan is being

17 An alternative is for each regional district to track its own solid waste disposal.


22

updated. It should include information such as a contact name / information for the

planning team, preliminary information on why the plan is being updated, and any

major directions set by the Board regarding the scope of work. Regional districts

should also publicize this notice, including in the local media and online.

List of groups to be directly notified includes but is not limited to the following:

- Ministry of Environment Regional Director

- Other provincial agencies (e.g., local health board, ministries responsible for community services and

aboriginal affairs)

- Any regional district that could be impacted by the plan

- Member municipalities

- First Nations within or adjacent to the plan area

- Owners of private waste management facilities and those responsible for materials management and

storage (e.g., haulers, recycling facility owners/operators (including collection facilities), product

stewardship producers and agencies, waste and recycling sector associations)

- Members of previous public and technical advisory committees (or existing monitoring committee)

- Public and private commercial or institutional organizations that create large amounts of municipal solid

waste or non-typical municipal solid waste (e.g., hospitals)

- Organizations with a known interest in waste management (e.g., local environmental organizations)

- Other community organizations (e.g., chambers of commerce)

B.1.2. Establish planning teams and committees

The planning team leading development of the solid waste management plan will

likely require a variety of skills, including familiarity with waste management,

engineering, economics and public engagement. There should also be an ability to

identify and explain the climate change impacts of proposed options.

Advisory committees

Using advisory committees to assist with the planning process helps to ensure that

diverse views are represented. Some regional districts appoint both a public advisory

committee and a technical advisory committee; however, others find it more efficient

and practical to combine these into a single committee (public and technical advisory

committee) (Figure 4). Committee membership should be balanced between technical

and non-technical members, and between industry / private sector and public

members.18

Ideally, these committees would continue to meet after a plan is

implemented (as the plan monitoring advisory committee) and should already be in

place when amendments and updates occur.

18 In reporting on consultation, the regional district should note who/what organizations were represented on the advisory committees and how and why this represented a fair balance.


23

Figure 4: Public Advisory and Technical Advisory Committees

Regional districts may also make use of an established community19

committee (such

as an environment committee), provided that representation is balanced and meets

the intended terms of reference.

Part F of this Guide includes information on potential committee membership and draft

terms of reference. It is important to establish committee terms of reference to ensure

that members are clear about their roles and expectations.

Role of the Ministry of Environment

In the past, ministry staff have been active in the development of solid waste management plans, have

participated on committees and have provided direct advice. Many regional districts now have ample

experience in solid waste management and planning and may require less support from ministry staff.

See Part G.1.of this Guide for more information on roles and responsibilities for solid waste management

planning.

Engaging with First Nations

First Nations participation in the solid waste management planning process may vary

across the province. In some regional districts, First Nations who have entered into a

modern-day treaty or self-government agreement may form part of a regional district

and may have representation on the regional district Board and thus may bring First

Nations interests and perspectives to Board decisions. In other regional districts, First

Nations may be represented on the public or technical advisory committees, playing

an active role in advising and reviewing as the plan is developed. Some First Nations

may have servicing agreements with a municipality or regional district and some may

be impacted by solid waste management decisions, including facility siting and / or

authorizations. Similarly, transfer stations or disposal facilities located on First Nation

land may impact the regional solid waste management system.

An engagement strategy for First Nations should be developed as part of the

consultation process to outline an approach for sharing information and inviting

participation in the preparation of or review of plan consultation documents. Further

guidance on consulting with First Nations can be found on the website20

of the

ministry responsible for aboriginal affairs.

19 Committees should include members of the public, not just members of the Board. 20 http://www2.gov.bc.ca/gov/content/environment/natural-resource-stewardship/consulting-with-first-nations

Public and Technical

Advisory Committee

http://www2.gov.bc.ca/gov/content/environment/natural-resource-stewardship/consulting-with-first-nations




24

B.1.3. Design the consultation process

Public engagement and input into the solid waste management plan helps ensure that

the final plan is robust and well-supported21

. As well, innovative ideas often emerge

from comprehensive engagement. Regional districts should ensure that they have

reached out to everyone who may have an interest in, or be affected by, the outcomes

of the solid waste management plan.

Interested parties

This Guide refers to “public” consultation—meaning everyone who wants to be part of

the process. It also refers to “interested parties” (sometimes called stakeholders).

These include agencies, organizations and individuals who have a particular interest

in solid waste management in the region (see Table 1). This list will vary by regional

district.

Table 1: Interested parties (sample)

Category Participants

Government

Municipalities

First Nations

Neighbouring regional districts

Federal and provincial agencies

Waste and recycling service providers

Haulers

Recycling processors

Organics processors

Industry associations

Product stewardship producers and agencies

Owners / operators of disposal facilities

Collection facilities

Environmental organizations Provincial and local groups

Community interests

Community associations and ratepayers’ groups

Chambers of commerce, local businesses and business associations

Consumer groups

Educational institutions, school districts

Waste producers

Industrial, commercial and institutional (ICI) interests (especially those producing special waste or large amounts of waste)

Out-of-region interests, including sources of waste and receivers of waste products

Entrepreneurs Innovators, designers of processes to reduce, reuse, recycle or recover waste

Interested individuals Residents living close to existing or proposed waste management facilities

“The public”

Consultation outcomes

21 Successful implementation of a plan benefits from the support of key players involved with delivering programs, as well as public support for program delivery. This support can be encouraged through the planning process.


25

The EMA requires regional districts to provide for a “comprehensive” public review

and consultation respecting all aspects of the development, amendment and final

content of a plan and for the minister to be satisfied there has been “adequate” public

review and consultation. The approach to consultation will vary by regional district. At

a minimum, the regional district should be making use of online tools (online

information and questionnaires for feedback) and local media to seek input, as well as

including notification to the public through regular mail-outs, such as invoices or

newsletters, and notification in local newspapers and media. Note that not all British

Columbians have access to or use the internet, so a variety of notification and

feedback methods should be provided.

A sample consultation process is provided in Part F of this Guide, together with some

examples of approaches to public engagement. Regional districts should design their

public review and consultation approach with input from the advisory committees.

In designing the public review and consultation process, regional districts should aim

for the following outcomes:

The public and other interested parties are aware of the solid waste management

planning process and of all opportunities to provide input

The consultation process is transparent, planning documents are publically

available (including online) and the rationale for decisions is clear

Through documentation of the consultation process, regional districts can show

how they have met legislative requirements

When submitting an amended solid waste management plan to the ministry for

approval, a regional district should be able to demonstrate, via its consultation report,

that “adequate” consultation has occurred as follows:

The advisory committee has been involved from the start of the process,

beginning at the design stage of the consultation process

The consultation process has been inclusive of a wide range of interested parties

(including the general public)

Interested parties (including the public) have been given ample notice of each of

the consultation opportunities through a variety of notification methods

The documentation provided sufficient information to enable the interested parties

to determine how their interests may be affected

Interested parties (including the public) have been provided with sufficient time to

respond to draft documents

The proceedings and outcomes from the consultation process have been well

documented and made available for public review, so that interested parties

(including the public) are able to see how the plan addresses their comments or

issues

Part D of this Guide includes a consultation summary report template.


26

B.1.4. Develop the budget

Regional district staff will need to develop a budget for the preparation of the solid

waste management plan, including support to the advisory committees and the

consultation process.22

Regional districts may contact the provincial ministry responsible for community

services to identify any grants that may be available to support the development of

solid waste management plans. Federal funding may also be available.

22 When looking at the need for budget, regional districts may also consider if there is a need to provide support funding for some groups to allow them to fully participate in the advisory committee and consultation process. This might include covering the costs of travel to meetings, or a small stipend for committee members.


27

B.2. Step 2: Set the Plan Direction

The second step is to set the direction

for the plan. What are the principles,

goals and targets that will drive

decisions? How is the current waste

management system working, are

there challenges that will need to be

addressed, or opportunities that

should be considered?

B.2.1. Identify principles, goals and targets

The solid waste management plan should be founded on locally-relevant guiding

principles, which are clearly stated in the plan. Principles should be developed in

consultation with the advisory committees and interested parties as part of the

consultation process. Guiding principles should be consistent with the provincial

guiding principles outlined in Part A.2.2 of this Guide; however, if the provincial

guiding principles are modified or not included, clear rationale for these decisions

should be provided to the ministry.

Goals are the long-term aims to be achieved as an outcome of the plan. Targets are

a way of measuring progress. For example, if the goal is ‘zero waste’, a target might

be to reduce the annual per person disposal rate to xx kg by 2025.

Local goals and targets should be developed with extensive input from advisory

committees and the public consultation process and ultimately should support

provincial targets.

Examples of goals include:

“Support circular economy approaches”

“Minimize environmental impacts of solid waste management to air, water and

land”

Step 2: Set the Plan Direction

Identify principles, goals and targets Establish locally relevant guiding principles, goals and targets that are complementary to provincial principles, goals and targets

Prepare background information Assemble information on the region’s population and growth, and pertinent social and economic trends

Assess the current solid waste system Describe and analyze the current waste management system

Consider trends that are impacting solid waste management

Look at industry trends

Consider local factors that are impacting solid waste management

Identify challenges and opportunities

Consult the public Seek input from advisory committees and other interested parties


28

“Responsibly manage residuals”

“Increase awareness of waste prevention”

At least one target should focus on disposal.23

Measuring progress towards targets

should include materials that move out of region. Examples of targets include:

“Achieve an annual disposal rate of xx kg per person by (year)”

“Reduce contamination rates from xx to yy by (year)”

“Eliminate disposal of organics to landfills by (year)”

“Establish landfill bans for wood waste (or other materials) by (year)”

“Reduce wildlife issues at landfills from xx incidents to yy incidents per year by

(year)”

“Reduce greenhouse gas emissions from the landfill and landfill operations by

xx% by (year)”24

Regional targets should have clear timelines and results should show continuous

improvement towards the targets.

B.2.2. Prepare background information

The background information in the plan provides an overview of the regional district.

This information could include:

A map of the region showing participating municipalities, First Nations and

adjacent regional districts

Pertinent information from official community plans, regional growth strategies and

other regional documents (e.g., relating to airshed management or emergency

debris management)

Population statistics (current and projected for the next 10–20 years)

Economic base (major drivers of the economy, especially as they relate to waste

generation)

Topography, including any physical constraints affecting waste management

Climate adaptation and mitigation considerations for the region, especially as it

relates to waste management

This information could be useful as a brief introduction for the purpose of consulting

with interested parties (including the public). A summary of this information may be

written into the plan itself.

B.2.3. Assess the current solid waste management system

The ministry recommends regional districts conduct a comprehensive review of their

system, including programs by both public and private sector operators, and include

information on:

23 A measure of disposal captures reduction and reuse activities and allows for better comparisons across jurisdictions. Diversion is a good measure of recycling activities but methodologies vary, making interjurisdictional comparisons problematic. 24 Consider targets in context to the Greenhouse Gas Reduction Targets Act.

http://www.bclaws.ca/Recon/document/ID/freeside/00_07042_01


29

The sources, composition and quantities of municipal solid waste generated within

the planning area and / or transported into the planning area for management25

Any materials that are not typical municipal solid waste that may be handled at

municipal solid management waste facilities in the region26

How “reduce” and “reuse” is addressed by the current system

Collection pathways for recycling, recovery and residual management

The existing and planned solid waste management capacity, including remaining

available capacity within the system and projected needs of the region

Product stewardship programs within the region

Education programs, including those supporting behavioural change

This review also provides an opportunity to look at what is or is not working well:

What are the strengths of the existing system (what is working well, should be

retained / enhanced)?

What are the areas for improvement in the existing system (what is not working

well, needs improvement or a new approach)?

Has the existing plan been implemented as expected?

Is the region on track to meet the targets it set previously?

Are there information gaps to be filled?

Creating the plan is an iterative process. The principles, goals and targets will provide

a “lens” through which to look at the current system, while reviewing the current

system will influence goals and targets—how can the region do better?

Figure 5: Plan Development as an Iterative Process

25 Note that sensitive market data may not be available to this assessment. 26 There may be other waste streams, under certain circumstances, which pass through disposal facilities that do not fall under the regional districts solid waste management plan. These other waste streams are managed through the operational certificate or another site specific authorization(s) from the province.


30

B.2.4. Consider trends affecting solid waste management

The waste management sector continues to evolve. An increasing number of products

are recyclable in some way, and many are subject to Extended Producer

Responsibility legislation in B.C., requiring manufacturers to manage these products

at their end-of-life. Markets for recyclables fluctuate, and the economic viability of

recycling products can change over time. No one can predict the future, but the

planning team and advisory committees should look at trends that they are aware of,

including global and local market conditions and risks, and consider their impact on

the future of waste management and recycling markets in the region. It is helpful to

engage the private sector in discussions on emerging opportunities and technologies.

B.2.5. Consult the public

Regional districts should consult with the public on the proposed principles, goals and

targets. Current system and future trend information should also be presented. This

can be an opportunity to seek ideas on opportunities to improve solid waste

management.


31

B.3. Step 3: Evaluate Options

The third step is to identify feasible

strategies and evaluate their

practicality for the solid waste

management plan.

B.3.1. Develop potential strategies

Understanding the strengths and areas for improvement of the current system, trends

in the solid waste sector, and what the region would like to achieve, helps to identify

aspects that would need improvement in order to meet the proposed targets.

Part H of this Guide provides a non-exhaustive list of sample solid waste management

strategies for each level of the pollution prevention hierarchy. Potential strategies can

be developed and modified with extensive input from advisory committees, the public

and all other interested parties.

In order to move from a list of potential strategies to a list of preferred strategies to be

included in a draft solid waste management plan, the regional district should carry out

a detailed evaluation of options. Part H of this Guide also includes some

considerations for evaluating strategy options. This list may also be drawn upon when

considering how to ensure a level playing field between public and private facilities.

B.3.2. Assess the financial and administrative implications

Regional districts are responsible for financial planning for the lifecycle of their solid

waste management system. Regional districts (as well as municipalities) have the

ability to enact service establishing bylaws and either provide a solid waste

management service in-house or contract it out. Funding for the strategies identified in

a solid waste management plan has been typically provided through a combination of

tipping fees, taxation, utilities, levies, grants or other means. A financial strategy that

works in one region may not be suitable for another.

Step 3: Evaluate Options

Develop potential strategies Identify a full range of possible strategies to achieve the targets

Consider the practicality and benefits / challenges of these strategies

Assess the financial and administrative impacts

Consider the financial and administration impacts of the solid waste management system, including the new proposals

Consult the public on the strategy options

Conduct a public consultation process that allows ample opportunity to provide input


32

Regional districts should be consulting with interested parties on the financial and

administrative implications of their solid waste management system, including

anticipated borrowing for capital projects and cost recovery. Timelines and cost

information for options to meet updated targets should be provided to the public and

business so that they can understand how they might be impacted. Regional districts

should be able to demonstrate support for their approach when submitting the plan for

the minister’s approval. Regional districts and member municipalities should work

together to provide cost effective, consistent, and efficient services and policies

across the region. The ministry recommends that they also explore partnership

opportunities with the private sector and encourage innovation and investment in the

marketplace.

Triple bottom line cost estimates should be developed which provide detail on

capital, operating and life cycle costs for processing, treatment and disposal systems.

The ministry responsible for community development may be able to provide guidance

to the regional district in this area.

B.3.3. Consult the public and interested parties on the options

There should be ample opportunity for the public to provide input into the proposed

options, and to identify their support (or not) for each of these. If not already provided,

regional districts should include opportunities for people to comment on the principles,

goals and targets at this time. Records should be maintained of comments provided

by the public and all other interested parties as well as the regional district’s response

to this input and rationale for decisions. The public consultation report template (see

Part D of this Guide) provides a suggested format.


33

B.4. Step 4: Prepare and Adopt the Plan

The fourth step is to finalize the draft

plan with public input, submit this to

the minister for approval and formally

adopt the approved plan.

B.4.1. Prepare draft plan

A solid waste management plan is written with three audiences in mind:

The minister (and ministry) who reviews and approves the plan

The regional district board and staff, to provide them with direction for solid waste

management in their region

The public and interested parties, so that they understand (and can provide input

into) solid waste management

Feedback from public consultation will inform the regional district’s decision on

preferred strategies for managing solid waste. These strategies should be discussed

and confirmed with the advisory committees.

Once the overall approach has been confirmed, the plan can be drafted for public

review and comment. Part D of this Guide provides a sample template for the written

plan.

Stage 4: Plan Preparation and Adoption

Prepare draft plan Confirm preferred strategies with advisory committees

Prepare draft plan

Review draft plan with advisory committees, adjust as needed

Consult the public Make draft plan available for public comment

Revise plan with public input and consult again if needed

Prepare plan for submission Share with ministry regional staff as appropriate

Prepare consultation summary report and complete checklist

Corporate Officer signs certification form

Submit draft plan package to Board for their review

Submit plan to Ministry for approval Include checklist, certification form, and consultation summary report

Ministry review and approval

Board adoption Following ministry approval, Board formal adoption of the final plan, including any conditions

Make the final plan and any conditions publically available, including on regional district website


34

Recognizing that plans contain operational details as well as higher level goals, the

ministry suggests that a solid waste management plan includes schedules in order to

allow for minor revisions to be made within the 10-year plan timeframe. This would

allow a regional district to consult on and seek minister approval for amendments to a

part of the plan rather than the entire plan.

Creating a “living” document

Because EMA does not specify what must go in an approved plan, regional districts have flexibility

around details that may be included in the plan. In creating the plan, consider what information should go

into the main part of the plan and what could go into plan schedules, or what could be communicated

outside of the plan.

Minor items that are likely to be amended during the 10-year life of the plan may be placed into

schedules for easier amendment.

Examples include:

Additional facilities integral to the regional waste management system such as transfer stations

Plan implementation schedule

Plan monitoring committee terms of reference

Plan dispute resolution procedures

Inventory of closed disposal facilities

Aspects of administrative and operational processes or content meant primarily to inform the public may

not need to be included in a plan for approval. If a regional district wanted this information associated

with their plan, the regional district could append an additional schedule to the plan with a note to

indicate that it does not form part of the plan and is for information only.

Examples include:

Product stewardship programs and collection facilities in the plan area

Links to municipal and regional district bylaws respecting waste management, including a listing of

current tipping fee information

Plan alignment with other legislation, guidance documents or regional plans

There may be a desire to regularly update this type of content to communicate with the public, but this

could be done outside of the minister approval process if the content is not contained within the plan or

plan schedules.

B.4.2. Consult the public on the draft plan

The completed draft of the plan should be reviewed by advisory committees and the

public, then revised with input from that process to form a final draft plan. Where

applicable, consultation should include pending zoning decisions related to siting of

any new facilities identified in the plan27

. Records should be maintained of comments

provided by the public and all other interested parties as well as the regional district’s

response to this input and rationale for decisions. The public consultation report

template (see Part D of this Guide) provides a suggested format.

27 Zoning decisions for facilities that are not known at the time of plan development (i.e. facilities that are proposed under waste stream management licences) would occur separately under an appropriate consultation process.


35

Reaching consensus on the plan

It is unrealistic to expect everyone involved in the process to agree on approaches to

solid waste management planning in the region. For example, one neighbourhood

may feel unfairly burdened by having a facility located close by. Different sectors may

disagree on the “best” approach. Full and entire agreement by all interested parties

(complete consensus), is not required for a plan to be finalized and submitted to the

minister for approval. Rather, there should be a demonstration that interested parties

were consulted during the development of the plan and that the outcome of

consultation was considered in the finalization of the plan.

Additional consultation may be required on contentious strategies, or a dispute

resolution process may be necessary. Part G of this Guide includes a sample dispute

resolution process.

A good consultation process will support plan development by keeping interested

parties focused on achieving shared goals and ensuring there is sufficient open

dialogue to let everyone know that their views have been heard, even if they are not in

support of the final decisions. Clear rationale for why final decisions have been made

should be shared with those who provided input during the planning process.

B.4.3. Prepare final draft for submission

Finalize the draft plan

After revising the draft plan based on public input, the final draft should be reviewed

by the advisory committees.

The regional district may choose to share the draft plan with ministry regional staff

prior to submitting to their Board. This allows ministry staff to review and provide any

recommendations back to regional district staff before the plan is considered by the

Board.

Prepare the plan review checklist

Completing the plan review checklist (see Part G of this Guide) serves two important

functions:

It provides an internal review by the regional district, assuring them that all

appropriate steps have been taken

It assures the ministry that the regional district has considered this Guide’s

recommendations in preparing the plan

Part D of this Guide provides a corporate officer certification form, which includes an

affirmation of the above as well as a statement that public consultation requirements

have been met. It should be signed and included with the plan submission package.


36

Prepare the public consultation summary report

With the completion of the consultation process, a regional district should be able to

demonstrate that adequate28

public consultation has occurred. A consultation

summary report should be submitted to the minister for review as part of the plan

submission package. The consultation summary report should include information on

the consultation process and the process followed to arrive at the preferred strategies.

If there are challenges in gathering public comment (e.g., a lack of feedback), the

report should document how due diligence was used to try and engage the public.

Part D of this Guide provides a template for a consultation summary report.

Board review

The final draft of the solid waste management plan should be approved by a

resolution of the Board to receive the plan and submit it to the minister for review.

A sample resolution is:

“That the Regional District of AA submit the solid waste management plan

(title, date), as approved by the Board on (date), to the Minister of

Environment for review and approval.”

B.4.4. Ministry review and approval

The final draft plan should then be submitted to the minister, together with the

completed checklist, corporate officer certification form and consultation summary

report.

Depending on the complexity of the plan and ministry resources, review and approval by the minister

may take several months or longer. The region’s existing solid waste management plan remains valid

until the new plan is approved.

The minister may or may not approve the plan and if approved, the plan may or may

not have conditions.

When reviewing a solid waste management plan, the minister and staff may look at

the following aspects:

Does the plan meet all legislative requirements and policy intent?

Has there been adequate public consultation during the development of the plan?

What are the consultation outcomes and are there outstanding concerns?

How does the plan help to meet the provincial waste management targets?

The checklist in Part G of this Guide provides a more detailed list of items that ministry

staff consider when making their recommendation to the minister.

Approval of the plan occurs when the minister issues a letter of approval. This letter

may incorporate additional requirements as conditions of plan approval. At this point

28 See consultation outcomes in section B.1.3


37

the plan monitoring committee (see Part B.1 and Part F of this Guide) should be

activated to ensure proper plan implementation.

B.4.5. Final adoption

Once the plan is approved by the minister, the Board will need to formally adopt the

plan and any conditions the minister may include.

The final solid waste management plan (including conditions) should be readily

available on the regional district website and hardcopies available at the regional

district and municipal offices.


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C. Plan Implementation, Monitoring and Reporting

C.1. Plan Implementation The plan should include the following implementation information.

Phasing: a schedule for the installation or expansion of residual management

capacity and for implementing plan strategies, including any phase out or closure

timelines. Flexibility should be incorporated into this schedule in order that the

regional district may respond to changing technology or solid waste volume and

character

Bylaws: requirements for new or amended bylaws (regional district or municipal)

Operational certificates (OCs) and licences: requirements for new or amended

operational certificates and licences

Under the EMA, where a requirement for bylaw development includes minister

approval, a regional district should be able to demonstrate that the bylaw was

developed with input from the regulated party and the public, and provide rationale for

the bylaw, based on the consultation outcome.

Following final adoption of the plan, the regional district should consult with the

Regional Director regarding finalization of OCs and any applicable waste stream

management licences.

Unless otherwise approved by the minister:

OCs are issued by a Director (or a Director’s delegate) to deal with the

environmental protection aspects of disposal facilities, recovery facilities accepting

unsorted municipal solid waste and, in some cases, transfer stations

The following licences may be issued by the regional district, to deal with financial

and operational control issues of concern to the regional district and community:

waste stream management licence (WSMLs) for recovery and disposal

facilities, including most transfer stations, that are involved with recyclable

material and/or municipal solid waste

recycler licence (RL), for sites and facilities involved in the processing of

recyclable material

This section includes

considerations for

implementing an approved plan.


39

hauler licence (HL), for vehicles hauling recyclable material or municipal

solid waste within or through the regional district

Where a regional district does not wish or need to implement bylaws related to

licensing sites or facilities, requirements for all aspects of the sites or facilities may be

included in the OC. Where a site or facility requires both an OC and a WSML, care

should be taken to ensure that the documents are compatible and do not generate

confusion. In cases of conflict, the OC will prevail.

See Part G of this Guide for more information on OCs and licences.

C.1.1. Dispute resolution

Every regional district should establish and consult on a dispute resolution procedure

for dealing with disputes arising during implementation of the plan.

The procedure should address disputes involving an administrative decision made by

the regional district in the issuance of a licence, interpretation of a statement or

provision in the plan, or any other matter not related to a proposed change to the

actual wording of the plan or an operational certificate.

See Part G of this Guide for a sample dispute resolution procedure.

C.2. Compliance and Enforcement Under EMA section 120(11), it is an offence to contravene an approved waste

management plan. Administrative monetary penalties29

may be used in cases where a

regional district does not manage municipal solid waste and recyclable material at a

site in accordance with EMA section 25(2). The ministry’s compliance policy will be

followed for facilities with authorizations under the EMA. Part E of this Guide sets out

provisions in EMA and other legislation that provide authority for regional districts to

enforce aspects of their plans.

Solid waste management plans may include a strategy for illegal dumping, demonstrating the

commitment of the regional district (and municipality) to identifying and cleaning up illegal dump sites

within the planning area through the utilization of local enforcement authority.

Regional districts may develop a strategy to promote compliance with their plan. This

should identify all parties that contribute to the achievement of plan goals and targets

and describe actions the regional districts could take to encouraging those parties to

do their part. These may include such things as:

Education targeted to households and businesses regarding banned material

Campaigns to support behavioural change (e.g increasing diversion)

Tagging of contaminated containers and positive reinforcement

Fines levied on contaminated loads at disposal facilities

29 As per EMA’s Administrative Penalties (Environmental Management Act) Regulation, B.C. Reg. 133/2014.


40

Voluntary agreements with haulers and facilities to provide disposal data for the

region

Licensing (waste stream management, recycler, hauler)

Illegal dumping information campaigns

Enforcement activities for bylaw offences (e.g., illegal dumping)

C.3. Plan Monitoring and Reporting

C.3.1. Plan monitoring advisory committee

Before adoption of the approved plan, the regional district should establish a plan

monitoring advisory committee whose members reflect:

The geography, demography and political organization of the plan area

A balance between technical and non-technical interests

Continuity with the public advisory committee, if possible through inclusion of

members of that committee who have experience gained in development of the

plan

The terms of reference for the plan monitoring advisory committee (see sample in Part

F of this Guide) should include:

A mandate to advise the regional district on all matters involving monitoring the

implementation of the plan and evaluating its effectiveness

A structure and procedures similar to that of the plan development advisory

committees

The regional district should submit its proposed terms of reference for the plan

monitoring advisory committee for review by the existing advisory committee(s).

C.3.2. Annual reporting

Regular reporting is important because it helps to keep solid waste management

plans current and focuses attention on whether the plan is achieving its goals and

targets. As well, it provides a way to provide information to interested parties and keep

an ongoing conversation around continuous improvement of the solid waste

management system.

Regional districts are asked to provide annual reporting of waste disposal information

to the Province via the ministry’s municipal solid waste disposal calculator.30

In

addition, it is helpful to prepare an annual or biennial31

report to the regional district

board (and public) on topics determined to be of interest and relevance in the region.

For example, the report could look at:

How the region’s programs support the pollution prevention hierarchy, especially

the first three Rs (reduce, reuse, recycle)

30 The ministry sends out a request for data to regional districts on an annual basis. 31 Once every two years.


41

How the plan contributes towards economic development, with emphasis on the

reuse and recycling sectors

Any challenges or opportunities identified within the waste management system

Monitoring data for closed sites

Compliance activities

Greenhouse gases emitted and avoided (through capture and reuse) at facilities

in the regional solid waste system

Spills, leaks and leachate collected at facilities

Wildlife interactions and control measures

As some of this information may be required to be reported elsewhere (e.g., as part of

the operational certificate conditions), the regional district will need to determine if

they will collate the information to provide a comprehensive report on the solid waste

management system activities or simply point the public to the information source.

C.3.3. Five-year effectiveness review

Regional districts should plan for and carry out a review of their plan’s implementation

and effectiveness after five years. This review should result in a report that is made

publically available (including online). The ministry may request a review of the

evaluation prior to public posting but otherwise it does not need to be submitted to the

ministry. Items to review / report on may include the following:

Overview of all programs or actions undertaken in first five years to support the

plan goals and targets, including status (started, in progress, complete) and

implementation costs for each

Description and forecasted budget for programs or actions not yet started and

status (implementation delayed, implementation on schedule, implementation

cancelled due to circumstances or decisions affecting the need for or feasibility of

undertaking the actions at all)

Five-year trend information for waste disposal per person

Five-year summary of economic development related to plan implementation

Five-year trend of greenhouse gases emitted and avoided (landfill gas capture

and reuse, flaring, or waste diversion)32

Summary of any compliance activities taken, spills, leaks and leachate collected

at facilities, and wildlife incidences over the past five years

Any significant changes related to the regional growth strategy or changes to

large industry and businesses operating in the area that might impact the solid

waste management system over the next five years

32 Emitted Emissions would be derived either from in-situ measurements or from modelling/estimates.

Avoided emissions could stem from landfill gas capture (measured on site, modelled or estimated),

flaring (measured/modelled with conversion factor for methane to CO2), or waste diversion (modelled

baseline vs project). For further information see http://www.env.gov.bc.ca/epd/codes/landfill_gas/


42

Based on the plan data from the first five years, an analysis of what is working

well (strengths) and challenges to meeting plan goals and targets. Ideally the data

would indicate continuous improvement over the five years. If things are working

well, the regional district might consider amplifying those successes. If not, what is

the rationale and what changes need to be made that would promote continuous

improvement?

Based on the analysis, any recommended revisions that the regional district would

like to make to the plan and next steps to amend the plan (consultation and

minister approval)

Third party reviewers

The review could involve a third party to evaluate the plan’s effectiveness, provide

recommended updates if needed, and share the findings and recommendations

publicly. Some considerations in engaging a third party to participate in the five-year

effectiveness review include:

Level of stakeholder sensitivity / controversy with plan strategies

Level of in-house capacity to gather all the plan data and produce a public report

Ability to objectively analyze plan performance

C.4. Plan amendments and 10 year plan renewal The minister must approve any amendment to an approved solid waste management

plan and must be satisfied that adequate public review and consultation has occurred.

This Guide refers to major amendments as those that require changes to the body of

the plan, and minor amendments as requiring changes to those plan schedules which

are identified as part of the plan.

At the end of the 10-year plan lifecycle, a regional district should complete a full plan

renewal that may require both major amendments to the plan and minor amendments

to plan schedules. Purely administrative provisions (such as a list of applicable

bylaws) may be appended to the plan if desired and identified as not forming a part of

the plan.

C.4.1. Major amendments to the plan

Substantial changes to an approved solid waste management plan require a plan

amendment, with public review and consultation and minister’s approval as outlined in

this Guide. Within a 10-year planning cycle, major amendments may not be required

(e.g., a regional district may wish to delay making major amendments until the plan is

renewed). Major amendments may be made at any time, however.

Substantial changes to the solid waste management system (that would trigger a full

plan (major) amendment) may include:

The opening (or changes to the location or status) of a site or facility:

That is included in a regional district’s solid waste management plan and

requires an authorization under the EMA33

; or

33 Composting facilities may be authorized under a solid waste management plan as outlined in the Organic Matter Recycling Regulation. (Other examples could include facilities subject to the Storage of


43

any other facility that could have an adverse impact to human health or

the environment

Waste import / export options which would significantly impact the regional

district’s or neighbouring regional district’s solid waste system(s)

Changing disposal targets or reductions in programs supporting diversion

A change in the boundary of the plan, which would significantly change the

amount of solid waste to be managed under the plan or significantly change the

population of the plan area

The addition, deletion or revision of policies or strategies related to the conditions

outlined in the minister’s approval letter

Major financial changes that warrant seeking elector assent

C.4.2. Minor amendments to plan schedules

It may be desirable to make minor amendments to the schedules of an approved solid

waste management plan during the 10-year plan cycle in order to keep information up

to date. A plan can be written to incorporate flexibility with respect to minor

amendments. Information that is likely to change (such as the plan implementation

schedule) can be included in schedules to the plan, so that they can be altered

without having to amend and obtain approval on the entire plan. Schedules should

contain an outline for how they may shift in minor ways as well as a procedure that will

be followed for notifying or consulting with interested parties (including the public) on

these minor amendments. Amendments to schedules that are part of the plan require

minister approval; however, as only the schedule(s) being amended require approval,

the process will be streamlined.

C.4.3. Renewing a solid waste management plan

The ministry suggests that a plan is renewed every 10 years, regardless of whether

major amendments are anticipated, to ensure that it reflects current practice and

realities in solid waste management. The renewal process should include the four

steps described in this Guide, including a full public consultation process and plan

approval by the ministry. On or before the 10-year anniversary of the current plan’s

approval, the Board should pass a motion to initiate a new planning process. During

this new planning cycle and until such time as an amended plan is approved by the

minister, the existing approved plan should be followed.

Recyclable Material Regulation or that have site specific permits issued under EMA.) An amendment to the solid waste management plan to include a facility not originally contemplated would require public consultation and follow subsequent steps in Stage 4 Plan Preparation and Adoption (regardless of whether a waste stream management licence (WSML) would apply to the facility). The regional district would work with ministry staff to draft the operational certificate for that facility once consultation has occurred.


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D. Sample Templates

D.1. Template: Solid Waste Management Plan .......................................................................................... 45

D.2. Template: Consultation Report............................................................................................................ 59

D.3. Template: Certification from Corporate Officer ................................................................................. 65


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D.1. Template: Solid Waste Management Plan

Regional District XX Solid Waste Management Plan

Prepared by:

(include version details during plan preparation phase) Draft/Final Date:

(replace version details with the date of plan approval) Date approved by Ministry of

Environment:

Note that this is a template only; regional districts may adjust the format and content of this template to suit

their needs. Instructions for filling out this template are provided in italics and should be removed from final

report. Bracketed text may be included optionally, depending on the unique circumstances in the region.


46

Contents

1. Introduction ................................................................................................... 47

1.1. Guiding principles ............................................................................................... 47

1.2. Pollution prevention hierarchy and targets ........................................................ 47

2. Background .................................................................................................. 48

2.1. Plan history ......................................................................................................... 48

2.2. Plan area ............................................................................................................. 48

2.3. Waste generation and management .................................................................. 49

3. Goals and Strategies .................................................................................... 50

4. Finance and Administration .......................................................................... 52

5. Conclusion .................................................................................................... 53

6. Plan Implementation .................................................................................... 53

7. Plan Schedules ............................................................................................ 56

8. Non-Plan Schedule ...................................................................................... 57


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1. Introduction

In British Columbia, regional districts develop solid waste management plans (plans) under the provincial

Environmental Management Act that are long term visions of how the regional districts would like to manage

its solid wastes in accordance with the pollution prevention (5 R) hierarchy. This plan will be renewed on a 10-

year cycle to ensure that it reflects the current needs of the regional district (RD), as well as current market

conditions, technologies and regulations.

The (Regional District Name) prepared their first solid waste management plan in (year) and amended that

plan in (year(s)). The history of the planning process is discussed further in section x. This draft document

represents the most recent amendment of the (RD’s) solid waste management plan and once approved by the

Province (along with any approval conditions), becomes a regulatory document for solid waste management

and serves to guide solid waste management related activities and policy development in the (RD). In

conjunction with regulations and operational certificates that may apply, this plan regulates the operation of

sites and facilities that make up the region’s waste management system (see section 2.2).

1.1. Guiding principles

The principles guiding the development and implementation of this plan are (RDs may replace this list with

their own set of guiding principles that are complementary to the provincial set):

Promote zero waste approaches and support a circular economy

Promote the first 3 Rs (Reduce, Reuse and Recycle)

Maximize use of waste materials and manage residuals appropriately

Support polluter and user-pay approaches and manage incentives to maximize behaviour outcomes

Prevent organics and recyclables from going in the garbage

Collaborate with other regional districts wherever practical

Develop collaborative partnerships with interested parties to achieve regional targets set in plans

Level playing field within regions for both private and public solid waste management facilities

1.2. Pollution prevention hierarchy and targets

This plan adopts the 5 R pollution prevention hierarchy (see Figure x) (or replace with own hierarchy).

Strategies to address each tier in the hierarchy are laid out in section x. Implementation of these strategies

over the plan’s 10-year timeframe is expected to contribute to the provincial disposal rate target of (350 kg per

person), and result in achievement of the following regional target(s):

Municipal solid waste disposal rate (kg per person) by (20xx) (include interim MSW per capita disposal

rates as necessary)

(Organic material disposal restrictions, compliance rates, contamination rates)

(other material disposal restrictions, compliance rates, contamination rates)

(Diversion targets)

(Food waste or other material reduction targets)

(GHG reductions)

(Other)


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2. Background

2.1. Plan history

The (RD’s) first solid waste management plan was approved by the ministry in (year). The ministry has since

approved (an) amendment(s) in (year). The main drivers for developing a new plan include:

Current challenges

Opportunities identified during planning and consultation process

Multi-jurisdictional opportunities (an analysis of efficiency/consistency opportunities with neighbouring

regional districts and any options that will be pursued)

The current planning process was initiated in 20XX. Schedule x includes links to all the planning technical

reports and the public consultation report. Participants in the planning process included:

Plan team: RD staff (and consultants) coordinated the planning process, participated directly in the

development of technical reports and conducted the consultation with interested parties

RD Board: reviewed, commended and approved documents that resulted from the planning process, and

provided direction to staff and consultants

Public and Technical Advisory Committee(s): reviewed information associated with the planning process

and provided input to staff and the Board

Interested parties (including the public): were kept informed during the plan development and participated

in consultation opportunities to provide input to the plan team and Board

2.2. Plan area

The plan applies to the geographic area of (RD) (see Figure x). All strategies and actions in the plan apply to

the following members of the (RD): (list municipalities and electoral areas). In addition, solid waste

management services are provided to (e.g., xx First Nations and / or areas outside of the RD).

Detailed information regarding the population, geography as it impacts solid waste management, growth and

economic development as it relates to waste can be found in the Plan Framework report (see link in Schedule

x). Significant projected changes over the next 10 years to the population, growth and economic development

include (list).

Existing facilities

Municipal solid waste in the region can be directed for management to any authorized site or facility identified

in the plan. Authorized sites or facilities are shown on Figure x and include: (list)

List facilities or sites included in this solid waste management plan that require an authorization under the

EMA

Identify other facilities that are outside of regional district boundary or control (assuming those facilities

have appropriate authorizations in place and / or are approved under a solid waste management plan that

meets or exceeds B.C. legislation)

Schedule x lists other facilities integral to the regional waste management system as well as the location and

stage of closure of landfills and / or dumps previously operating in the region.


49

Future facilities

Municipal solid waste in the region may be directed for management to any new site or facility contemplated

by this plan provided the new site or facility follows the process for development as outlined herein.

New sites and facilities specifically contemplated in this plan include: (list)

The process for development of new sites and facilities shall include but not be limited to:

An appropriate procurement process

Ensuring that authorizations (including OCs, licences and registration under OMRR) are obtained as

necessary, and that any requirements from other levels of government are also met

Environmental assessment, including an assessment of human health risk acceptable to the applicable

health authority and public consultation, as may be required by provincial and federal regulations

Public consultation on new (or amended) sites or facilities that require authorization under the EMA

Any additional assessment as laid out in the minister’s conditions for approval of this plan

The addition of new sites or facilities not contemplated in this plan will require an amendment to the plan.

2.3. Waste generation and management

(suggested text – provide a high level summary from the technical reports on the current waste management

system)

Over the past (10) years, the (RD) waste disposal rate has ranged from (high to low) as shown in Figure x

(annual disposal rate trends available from Environmental Reporting BC). The most recent waste

characterization study completed for the region in (20XX) (or describe other methodology to arrive at

estimates) showed approximately x% of the volume is attributed to residential (including multi-family) and x%

to institutional, commercial, construction, renovation and demolition. It is estimated that approximately x

amount of waste moves out of the region to (x,y,z facilities) and x amount of waste moves into the region for

disposal from (x,y,z areas).

(RD may also want to summarize future trend information such as trends and proposals that will affect solid

waste management in the region, or anticipated changes for the next 10–15 years (weight, volumes, materials,

processing and/or reference a link to more detailed study).)

In (RD), the following organizations contribute to municipal solid waste management (customize for RD

circumstances).

Who Roles in Solid Waste Management

Federal government Regulates waste management facilities under federal jurisdiction

Provincial government Various ministries have regulatory authority related to waste management

Regional district (Board and staff) Develops plan to provide big picture oversight of waste management in the region

Through plans and plan implementation (including bylaws), works to meet waste disposal goals and targets and ensures that community has access to waste management services that are environmentally sound and cost effective

Ensures that legislative and policy requirements are followed, including monitoring and reporting

Chairs committees / coordinates with municipalities in service delivery

(Operates facilities / collection system (provide service))

Supports Product Stewardship programs in jurisdiction

Demonstrate 5 Rs within own operations and those of member municipalities

http://www.env.gov.bc.ca/soe/indicators/sustainability/municipal_solid_waste.html


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3. Goals and Strategies

(Describe the plan strategies and actions for each tier in the pollution prevention hierarchy or each regional

goal, including commitments made by member municipalities and First Nations as well as the contribution of

private sector agencies or external programs to the strategies and any actions that local government will take

to support private sector actions. The following are for illustrative purposes only—see the Guide Part H for

more examples and ideas).

Sample format:

Goal 1

Strategy 1.1

RD action(s)

Municipality(ies) action(s)

External programs/private sector contribution(s) and description of how the regional district is

supporting these if applicable

Risk analysis for strategies that are not fulfilled

Reduction

Programs and / or actions supporting reduction (e.g., food waste prevention)

External programs (e.g., business certification programs, grocery store food waste campaigns)

Reuse

Programs and / or actions supporting reuse (e.g., zoning and licensing support for remanufacturing

businesses)

External programs (e.g., businesses or opportunities that support reuse)

Municipalities (council and staff) May provide / coordinate waste management service, or own / operate facilities

May make bylaws dealing with waste collection

Municipal enforcement officers part of enforcement team

First Nations May provide waste management services or may participate in regional waste management system


Ensure reasonable and free consumer access to collection facilities

Collect / process stewarded products

Coordinate local government delivery as a service provider where applicable

Provide and / or fund education and marketing

Provide deposit refunds to consumers (where applicable)

Monitor / report on key performance indicators such as recovery rates

Private sector involved in waste management (e.g., haulers, facility operators)

May provide recycling and waste management services and own/operate facilities

Generally, services multi-family residential buildings, commercial and institutional sources, and construction, demolition and land clearing sectors

(may be regulated by local government through licensing bylaws)

Neighbouring jurisdictions May send waste to (XX RD’s) facilities or accept waste from XX RD

Synergies, consistencies in waste management with neighbouring jurisdictions

Residents and businesses Responsible for carrying out proper waste reduction, recycling and disposal activities


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Recycling and organics

Recycling and organics programs (public and private sector)

Establishment of facilities

Local government support for extended producer responsibility programs operating in the plan area. e.g.,

providing input during the consultation phase on draft product stewardship plans

providing facilities or operational services as a service provider at a landfill or other local site for

product collection or processing

helping to inform the public that the stewardship program is available

assisting the producer or agency with local land use and business licence issues relating to

collection and processing facilities

imposing landfill disposal bans on regulated products

providing input on the operations of product stewardship programs

facilitating collaboration between product stewardship producers or agencies at a regional level to

improve servicing (e.g., stewards coordinating transportation and collection logistics to improve

servicing in rural areas; co-locating collection programs; cooperative marketing / promotion)

carrying out waste composition studies at landfills and sharing data related to regulated products

Recovery and residual waste management

Existing or anticipated recovery programs and facilities

Existing or anticipated disposal facilities

Materials banned from disposal

Closure and monitoring information for facilities and sites that have previously been a part of the waste

management system

Hard-to-manage wastes (e.g., demolition wastes, land clearing wastes)

Landfill management issues (e.g., wildlife management)

Illegal dumping reduction strategy

Educational programs

(may be integrated into above strategies)

Promotion and education programs to support plan strategies

Plans to reduce greenhouse gas emissions from waste management

Sector specific strategies

(may be summarized separately or integrated into above strategies)

Industrial, commercial and institutional waste (ICI)

Construction, renovation and demolition waste (CRD)

Land clearing

Non-MSW waste handled by MSW facilities in the region (identify if applicable and note that these are not

under the authority of the plan)


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4. Finance and Administration

(customize to describe RD’s system)

Funding to implement the actions identified in this plan is provided by residents and businesses through

municipal taxes, user fees and tipping fees. (Describe revenue sources and a breakdown of percentages if

applicable). The following breakdown is based on best available information at the time of the plan’s

development.

Current Plan (average / year over past 3–5 years)

Proposed Plan (per year, project out for at least 5–9 years)

REVENUE

Taxes

Levies

Tipping Fees

Grants

Reserve

Misc.

Total Revenue

EXPENDITURES

Existing programs—Capital costs

X

Y

Z

Existing programs—Operating costs

X

Y

Z

New programs—Capital Costs

X

Y

Z

New programs—Operating costs

X

Y

Z

Total Expenditure

Monthly Cost to Homeowners

Other aspects that may be addressed in RD financial write-up:

Cost recovery (i.e., anticipated impact on property tax payers)

Financial assessment of the viability of the plan (may include triple bottom line analysis of the plan

implementation);

Interaction between public and private programs


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5. Conclusion

Provide a summary of the environmental, social and economic impacts of the plan.

6. Plan Implementation

Implementation schedule

A timeframe for implementing each plan strategy and action is included in Schedule x.

Bylaws

Existing or proposed bylaws (RD and municipal) are included in Schedule x.

Plan monitoring

A plan monitoring advisory committee (PMAC) will monitor the implementation of the plan and make

recommendations to increase its effectiveness. A description of the plan monitoring advisory committee tasks

and make up are included in the terms of reference which can be found in Schedule x.

Compliance promotion strategy

Many parties contribute to the achievement of the plan goals and objectives. The strategy outlined below for

promoting compliance with the plan takes into consideration the roles and responsibilities of both those

providing the compliance actions and those receiving the compliance actions. (RD to customize)

RD, municipality, haulers, product stewardship producers and agencies can provide generator targeted

education regarding materials restricted from disposal facilities

RD or municipality can levy fines on contaminated loads at disposal facilities

RD can develop voluntary agreements with haulers and facilities to get better disposal data for the region

RD can implement waste stream management licensing

RD + partners can deliver strategies for reducing illegal dumping (e.g., distribute information)

RD + municipalities can enforce bylaws (e.g., with respect to illegal dumping)

Annual reporting

Reporting is important because it helps keep the plan current, and focuses attention on whether the plan is

achieving its goals and targets.

The (RD) will provide annual reporting to the ministry of waste disposal information via the ministry’s municipal

solid waste disposal calculator.

In addition, the (RD) will prepare an (annual or biennial) report to the Regional District Board and provide links

on the (RD) website to reports provided to the Board in relation to the plan. Topics that will be included in the

report include (RD to customize for regionally specific topics of interest):

Programs delivered each year and how they support the waste management hierarchy, especially the first

three Rs (reduce, reuse, recycle)

Economic development related to solid waste management in the region

Challenges or opportunities identified by the plan monitoring advisory committee


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Monitoring data for closed sites

Compliance activities

Landfill gas capture and reuse

Spills, leaks and leachate collected at facilities

Wildlife interactions and control measures

Five-year effectiveness review

The (RD) will carry out a review and report on the plan’s implementation and effectiveness in 20XX. A link to

the report will be provided on the (RDs) website. The review will be conducted by (in-house / third party) and

will include (RD to customize):

Overview of all programs or actions undertaken in first five years to support the plan goals and

objectives—status (started, progress, complete); actual budget for each

Description of all programs or actions not yet started and reason (delayed start and why, initiation planned

for next five years, circumstances or decisions affecting the need for or feasibility of undertaking the

actions at all); budget allocated for each

Five-year trend information for waste disposal per person

Five-year summary of economic development related to plan implementation

Five-year trend of landfill gas capture and reuse (if applicable)

Summary of any compliance activities taken, spills, leaks and leachate collected at facilities, and wildlife

incidences over the past five years

Any significant changes related to the regional growth strategy or changes to large industry and

businesses operating in the area that might impact the solid waste management system over the next five

years

Based on the plan data from the first five years, an analysis of what’s working well (strengths) and

challenges to meeting plan goals and targets

Based on the analysis, any recommended changes that the regional district would like to make to the plan

and next steps regarding seeking those changes (consultation and minister approval for changes)

Plan amendments

This plan represents the current understanding and approach to the solid waste management challenges

being faced by the (RD). The plan is a “living document” that may be amended to reflect new considerations,

technologies and issues as they arise.

Due to changing circumstances and priorities that may evolve over time, and with the input of the plan

monitoring advisory committee and interested parties, all major actions identified in the plan will be reviewed

for appropriateness before implementation. This will generally occur on an annual basis. The plan’s

implementation schedule will be flexible enough to reflect the availability of technologies that may arise over

time, as well as the potential changes in regional issues and priorities. In addition, it will also take into account

the financial priorities of the (RD), its member municipalities and other partners, the availability of funding to

undertake plan activities, and the availability of contractors and service providers.

The plan amendment procedure applies to major changes to the solid waste management system which would

include:

a) The opening (or changes to the location or status) of a site or facility:

That is included in this regional district’s solid waste management plan and requires an

authorization under the EMA;

or any other facility that could have an adverse impact to human health or the environment


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b) Waste import / export options which would significantly impact the regional district’s or neighbouring

solid waste systems, or not conform to provincial legislation, goals and / or targets

c) Changing disposal targets or reductions in programs supporting the first three Rs in the pollution

prevention hierarchy

d) A change in the boundary of the plan, which would significantly change the amount of solid waste to

be managed under the plan or significantly change the population of the plan area

e) The addition, deletion or revision of policies or strategies related to the conditions outlined in the

minster’s approval letter

f) Major financial changes that warrant seeking elector assent

When a plan amendment becomes necessary, the (RD) will undergo a public consultation process and submit

an amended plan to the Minister of Environment for approval, along with a detailed consultation report.

The schedules identified as part of this plan contain information that is not considered a major change listed

above but could change during the 10-year lifespan of the plan. Each schedule includes a process for

engaging the public, ranging from notification to a robust public consultation process. Schedule amendments

may require approval from the minister but may not require submission of the entire plan for review and

approval. Schedules that contain purely administrative provisions are identified as not forming a part of the

plan and updates to these provisions do not require minister approval.


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7. Plan Schedules

Schedule X: Additional facilities

The following additional facilities integral to the regional waste management system are also shown on Figure

x: (list)

Schedule X: Implementation schedule

Proposed implementation dates will be contingent upon the timing of the plan’s approval by the Ministry of

Environment and the amount of resources available for the implementation of the strategies. The

implementation schedule will be reviewed in line with the (RD’s) annual budget cycle. The plan monitoring

advisory committee will provide input into any amendments to this schedule and (additional actions the (RD)

will take to provide notice of the schedule amendment).

GOAL 1 Priority Rank Year 1

Year 2

Year 3

Year 4

Year 5

Year 6

Year 7

Year 8

Year 9

Year 10

Strategy 1.1 Action 1.1.1

Action 1.1.2

Strategy 1.2 Action 1.2.1

Action 1.2.2

Schedule X: Plan monitoring advisory committee terms of reference

(see sample in Part F of the Guide to Solid Waste Management Planning).

Schedule X: Plan dispute resolution procedures

The parties will make all reasonable efforts to attempt to resolve the dispute in an amicable manner without

outside intervention. The Ministry of Environment does not become involved in resolving or making a decision

in a dispute.

This dispute resolution procedure may apply to the following types of conflicts:

Administrative decisions made by RD staff

Interpretation of a statement, bylaw, policy or provision in the plan

The manner in which the plan or an OC is implemented

Any other matter not related to a proposed change to the wording of the plan or an OC

Collaborative Decision Making and Dispute Resolution – Suggested Procedure (or replace with

procedure consulted on during plan development)

Negotiation Parties involved in the dispute make all efforts to resolve the dispute on their own.

Parties may make use of a facilitator

Plan Advisory Committee

(if appropriate)

Parties involved in the dispute will have opportunity to speak to the Committee

Committee will review, consider and provide recommendations to the Board


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Board Parties involved in the dispute will have opportunity to speak to the Board

Board will receive recommendations from the Committee and settle the dispute; or, recommend mediation

Mediation Parties involved in the dispute agree on a mediator. If the parties cannot agree on a mediator, the matter shall be referred to the BC Mediation Roster Society or equivalent roster organization for selection of a mediator

All efforts will be made to reach an agreement through mediation

Costs for mediation are shared by the parties in dispute

Independent Arbitrator If the dispute cannot be resolved by a mediator, the matter will be referred to arbitration and the dispute will be arbitrated in accordance with the Local Government Act or BC Commercial Arbitration Act

The arbitrator shall make a final, binding decision

Costs for arbitration shall be apportioned at the discretion of the arbitrator

Closed site inventory

Figure xx shows the location and stage of closure of landfills and / or dumps previously operating in the region.

8. Non-Plan Schedule

This schedule contains administrative provisions that do not form part of the approved plan and are for

information only. The provisions will be updated as needed and do not require minister approval.

Extended Producer Responsibility

Product stewardship programs and facilities in the area include (list the programs and map the collection

facilities or if too many, summarize numbers in each community. Stewardship associations may be able to

provide data.)

In the (RD), the addition of a new collection facility requires (zoning / licensing / other; any public notification

associated with zoning / licensing / other; and any additional actions the (RD) will take to provide notice of the

schedule update).

Bylaws

The following RD and municipal bylaws related to waste management in the area have been developed in

accordance with requirements in the Environmental Management Act, Local Government Act, Community

Charter, Greater Vancouver Sewerage and Drainage District Act and Vancouver Charter (as appropriate). Any

amendments to these bylaws for the purposes of implementing this plan will follow the requirements for public

consultation contained in legislation (including minister’s approval as required) and (actions the RD will take to

provide notice of the schedule update).

(Links to bylaws)

Plan alignment

The following key initiatives (RD to customize the example list provided below) are supported by the plan. This

list will be updated when the RD is made aware of changes to these initiatives and (list additional actions the

RD will take to provide notice of the schedule update):

Climate Leadership Plan

BC Energy Plan


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BC Bioenergy Strategy

BC air quality objectives

Product stewardship programs under the Recycling Regulation (EMA)

Organic Matter Recycling Regulation (EMA)

Reviewable Projects Regulation (Environmental Assessment Act)

Landfill Gas Management Regulation (EMA)

Landfill Criteria

Integrated Resource Recovery

Develop with Care

A Guide to Green Choices—Ideas and Practical Advice for Land Use Decisions in BC Communities

Regional Plans (both in region and outside)

Regional Growth Strategy

Community Climate Action Plan(s)

Regional Sustainability Strategy and Action Plan

Emergency Debris Management Plan(s)

Airshed Management Plan

Community Energy and Emissions Plan(s)

Regional Parks Plan(s)

Tipping fees

The current tipping fees at sites and facilities authorized under this plan are as follows: (list)

Any changes to the tipping fee rates will follow the requirements for public consultation contained in legislation.

and (actions the RD will take to provide notice of the schedule update).


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D.2. Template: Consultation Report

Regional District XX Solid Waste Management Plan

Public Consultation Summary Report

Prepared by:

(include version details during plan preparation phase) Draft/Final Date:

Note that this is a template only; regional districts may adjust the format and content of their consultation

report to suit their needs. Instructions for filling out this template are provided in italics and should be removed

from final report.


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Contents

1. Introduction ................................................................................................... 61

1.1. Background and Consultation Objectives ........................................................... 61

2. Plan Initiation ................................................................................................ 61

3. Advisory Committee ..................................................................................... 61

4. Public Consultation Design .......................................................................... 62

5. Participation.................................................................................................. 62

6. Promotion and Advertising ........................................................................... 63

7. Feedback during Public Consultation Process ............................................ 63

8. Preferred Strategies ..................................................................................... 63

9. Plan Implementation .................................................................................... 63

10. Appendices ................................................................................................... 64


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1. Introduction

This Public Consultation Summary Report describes public consultation that was undertaken by the (Regional

District Name) in revising the Solid Waste Management Plan. The public consultation meets the requirements

outlined in Section 27 of the Environmental Management Act, which requires that adequate public review and

consultation of the solid waste management plan must be completed. In addition, the public consultation

process was designed to meet elector approval requirements for any borrowing of funds required to implement

the plan once it is approved.

1.1 Background and Consultation Objectives

The (RD’s) first solid waste management plan was approved by the ministry in (year). The ministry has since

approved (an) amendment(s) in (year). The current planning process was initiated in 20XX.

The objectives of public consultation associated with the current planning process were as follows (examples

below should be replaced by consultation objectives defined by the RD and advisory council):

To ensure requirements under the Environmental Management Act are met

To ensure the public consultation considerations outlined in the Guide to Solid Waste Management

Planning are addressed

To provide interested parties with opportunity for input and feedback on the plan

To ensure the amended plan aligns with information gathered during public consultation

2. Plan Initiation

At the initiation of the planning process, interested parties were notified that the plan was being updated. The

notifications included contact information for the planning team, preliminary information on why the plan is

being updated, and major directions set by the Board. An example of the notices is provided in Appendix x.

The following is a list of interested parties that were contacted upon plan initiation:

Interested Party Mailing Address Category Date/Type of Engagement

3. Advisory Committee

Upon plan initiation, advisory committees were established for the planning process.

Describe if public advisory committee was separate or if it was combined with the technical advisory

committee. Provide rationale.

Please see Appendix x for the advisory committee’s terms of reference, membership, list of meetings held,

and a complete set of agendas and minutes.


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4. Public Consultation Design

After initial notification to interested parties was provided and the public advisory committee was established, a

public consultation process was designed (and adopted by the Board). A copy of the public consultation

process is included in Appendix x.

5. Participation

The designed public consultation process was executed through the various steps of the planning process.

This section summarizes activities that took place during public consultation.

Open Houses or other events

Date Location Attendees

Include a description of the event design, answering the following questions as applicable:

Which local government representatives were at the sessions?

Were display panels provided? What was indicated on the panels? What information about the plan

facilities and costs was provided?

Were there any presentations?

Was there opportunity for questions and answers?

What was attendees’ involvement?

Was there opportunity for attendees to provide feedback? Surveys or questionnaires?

Include a copy of responses received in Appendix x.

Web-Based Participation

Dates Available Information Provided or Collected Participation Numbers

Include a description of the web-based consultation design, answering the following questions as applicable:

Were there online surveys or questionnaires?

Were there webinars? What was presented? Opportunity for Q&A

What was the social media presence?

Include a copy of responses received in Appendix x.

Other Opportunities for Public Participation and Feedback

Include a description of any other methods used to provide information to the public regarding the planning

process.

Include a description of any other methods used to receive input from the public regarding the plan

principles, targets, strategy options and draft plan.


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6. Promotion and Advertising

The following strategies were used to promote opportunities for learning about the planning process and for

providing input into the process:

Describe strategies that were developed and used to encourage participation at the open houses, increase

web-based participation and encourage other opportunities for public input. Examples may include mail-

outs, print advertising such as newspapers and community bulletin boards, radio advertising and web

advertising

Samples of material produced for public distribution should be included in Appendix

7. Feedback during Public Consultation Process

During the planning steps, the following interim consultation reports were produced to document feedback

received and share the results of the consultation publically

Topic of Consultation (or step in planning process in which consultation took place)

Interim Consultation Report (link to publically available report and describe how and when the report was publicized)

Consultation Themes (summarize main themes re public input and how the consultation has influenced the plan)

Plan principles, goals and targets Hyperlink or attached as appendix

Proposed options for strategies

Draft plan

Proposed new bylaws or bylaw amendments for plan implementation

8. Preferred Strategies

This section includes information on how feedback from consultation was taken into consideration as well as

the process followed to arrive at the preferred strategies.

Strategy Options (list all options considered for the plan)

Level of Public Support (provide an indication and evidence of support for or opposition to each strategy option. Evidence may include both a quantitative and qualitative discussion of public input)

Strategy Decisions (provide rationale for why each strategy option was or was not included in the final draft plan)

9. Plan Implementation

After the plan is approved by the minister, a Plan Monitoring Advisory Committee (PMAC) will monitor the

implementation of the plan and make recommendations to increase its effectiveness. A description of the plan

monitoring committee tasks and composition are included in the terms of reference which can be found in

schedule x of the plan.


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10. Appendices

Appendix X Plan Initiation Notices

Appendix X Public Advisory Committee

Terms of Reference

Membership

List of Meetings

Agendas and Minutes

Appendix X Public Consultation Design

Appendix X Participation

Materials Distributed (questionnaires; brochures; panels, etc.)

Responses Received

Appendix x Promotion and Advertising

Materials Distributed (mail-outs, advertisements, etc.)

Appendix X Interim Consultation Reports

(not necessary if links to electronic versions are provided)

Appendix X Plan Monitoring Advisory Committee


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D.3. Template: Certification from Corporate Officer

CORPORATE OFFICER’S CERTIFICATE

The (here insert the full corporate name of the regional district) (the “regional district”)

The undersigned Corporate Officer, as the regional district officer assigned responsibility under section 236 of

the Local Government Act, hereby certifies as follows:

1. That the regional district’s Solid Waste Management Plan (the “plan”) was duly and properly consulted

on in accordance with the provisions of the Environmental Management Act section 27(1) and in

accordance with the objectives set out in the regional district’s applicable consultation process.

(Attached is a copy of the consultation summary report which documents how the regional district’s

consultation process has been fulfilled).

2. That the Ministry of Environment’s requirements and recommendations for the plan content, as

defined in the Checklist for Review and Approval of Plans (the “checklist”), have been duly met and

any requested rationale for decisions has been provided with the checklist. (Attached is a copy of the

completed checklist).

3. To the best of the knowledge of the undersigned, there are no objections to the plan that have not

been acknowledged and addressed.

DATED this _______ day of _________________________, 20_____.

_________________________________ Corporate Officer

________________________________ (Please print full name)


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E. Legislation and Regulations Governing Municipal Solid Waste

This part provides a brief summary of legislation and regulations governing municipal solid waste (Table 2). The Acts and regulations are

available at http://www.bclaws.ca/. While every effort is made to achieve accuracy, this summary should not be relied on for legal and other

purposes. Persons who need to rely on the text of the Statutes, Regulations, Bills, and Gazette for legal and other purposes may obtain the

Queen's Printer official printed version from Crown Publications, Queen's Printer. Legal advice should be sought if interpretation is required.

Abbreviations:

CC – Community Charter

EMA – Environmental Management Act

GVS&DD - Greater Vancouver Sewerage and Drainage District

GVS&DDA - Greater Vancouver Sewerage and Drainage District Act

LGA – Local Government Act

RR – Recycling Regulation

Table 2: Legislation and regulations governing municipal solid waste.

Topic Provision Act/Sections Notes

Introduction of waste into the environment

Prohibited: Introducing waste into the environment in the course of conducting a prescribed industry, trade, business, activity or operation [section 6(2) and (3)]

Exception: unless the disposition of waste is in compliance with EMA and all of the provisions of paragraph 6(5)(a) that apply or are required. [e.g., an approved waste management plan].

EMA ss. 6(2), (3) and (5)

EMA regulates the protection of health and the environment in relation to the introduction of waste into the environment

Definitions “waste management plan” is a “plan that contains provisions or requirements for the management of recyclable material or other waste or a class of waste within all or a part of one or more municipalities”

“municipality” includes, among other things, a regional district and the Greater Vancouver Sewerage and Drainage District (GVS&DD)

"municipal solid waste" means “(a) refuse that originates from residential, commercial, institutional, demolition, land clearing or construction sources, or (b) refuse specified by a director to be included in a waste management plan”

“site” [defined as “any site or facility, including those identified specifically or by class in an approved waste management plan for the management of municipal solid waste or recyclable material”].

EMA s. 1

EMA section 23

EMA s. 25

The definitions in section 1 of EMA apply throughout EMA

This definition applies only in EMA Part 3

The definition of “site” applies only in EMA sections 25 and 26.

Solid waste management plans

Mandatory: A plan and any amendment to a plan must be approved by the minister. Public consultation is required before ministerial approval.

Minister authority: The minister

may or may not approve the plan and if it is approved, the plan may or may not have

EMA s. 24(5) and 27(2)

EMA s. 24 (6)

Part 3 (sections 23 – 28) addresses municipal waste management and authorizes regional districts to undertake solid waste management planning

http://www.bclaws.ca/

http://www.crownpub.bc.ca/


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conditions.

may, by order amend or cancel a waste management plan and if cancelled the waste management plan has no force or effect.

Minister authority: If in the public interest, the Minister can require a regional district or the GVS&DD to amend, suspend or cancel a bylaw, part of a bylaw or any authorization given under a bylaw made under EMA section 25, 32 or 33.

EMA s. 34(2)

Management of solid waste and recyclables by regional districts

Mandatory: Despite any other Act, municipal solid waste and recyclable material must be managed at a site in accordance with:

any applicable approved waste management plan for the site,

any requirements or conditions that a Director includes in an operational certificate or

permit issued for the site; and

any applicable bylaw made under EMA s. 25(3) or 32.

Permissive: A regional district may make bylaws for the purpose of implementing its municipal solid waste management plan. Such bylaws may include regulating the management of municipal solid waste or recyclable material as well as bylaws addressing municipal solid waste disposal fees.

EMA s. 25(2)

EMA s. 25(3) and 26

The phrase "...despite any other Act..." is included because regional districts also have authority under other legislation to deal with the management of municipal solid waste (see under LGA below)

Management of solid waste and recyclables by the GVS&DD

Permissive: The GVS&DD may regulate the management of municipal solid waste and recyclable material within the geographic boundaries of the GVS&DD, including determining which facilities are authorized to receive municipal solid waste and recyclable material.

Permissive: The GVS&DD may establish the uses to which its waste disposal facilities may be put and by whom they may be used.

Permissive: The GVS&DD, in addition to the authority it already has under the GVS&DD Act, may make bylaws to prohibit, regulate or otherwise control the introduction into the environment of municipal solid waste.

GVS&DD Act s. 7AA 5(b)

EMA s. 32

The GVS&DD Act governs the corporation of the

GVS&DD.34 The objects of the GVS&DD include

the disposal of all types of waste and the operation and administration of facilities for the disposal of all types of waste.

The GVS&DD Act provides that for the purpose of planning for, regulating, storing, and managing solid waste and recyclable material under EMA the GVS&DD is deemed to be a regional district

Bylaws that conflict with EMA have no effect

For the purpose of municipal solid waste:

Despite the CC, the LGA, the Vancouver Charter or the GVSDD Act:

a bylaw of a municipality (as defined in EMA s. 1) made under any of those statutes, [except a bylaw made under EMA s. 32 or 33] that conflicts with EMA, the regulations under EMA, an approved waste management plan or a permit, approval or order under

EMA s. 37(1)

As above, other acts give bylaw making authorities to regional districts. However, bylaws made under those authorities cannot conflict with EMA and cannot conflict with a bylaw made by the GVS&DD under EMA s. 32 or another regional district under EMA s.33.

34 The members of the corporation are the City of Vancouver and the Corporation of the District of Burnaby (member municipalities). “Greater Vancouver” is not defined in EMA. It’s not clear if the reference in EMA to “Greater Vancouver” refers to the GVS&DD or to Metro Vancouver. In practice, Greater Vancouver is also known as Metro Vancouver. Metro Vancouver is considered as an RD. Four separate corporate entities, each with a different set of members, operate as Metro Vancouver: the Greater Vancouver Regional District; the GVS&DD; the Greater Vancouver Water District; and the Metro Vancouver Housing Corporation.


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EMA is without effect to the extent of the conflict

a bylaw of a municipality that conflicts with a bylaw made by the GVS&DD under section 32 or by other regional districts under section 33 is without effect to the extent of the conflict.

EMA s. 37(4)

Regional district bylaw process

Mandatory: To regulate an activity, a regional district must first provide a service. A service is established through an establishing bylaw which must be approved and then adopted.

Exception: some services (such as general administrative) do not require an establishing bylaw.

LGA Part 10 division 3 [s. 338(2)]

Regional districts have broad powers to undertake the services they believe are important within their regions. In addition to solid waste management planning which the province requires, other services include water supply, sewers, fire protection, parks and recreation, animal control and public housing.

Authority to make bylaws for municipal solid waste and recyclable material

Permissive: A regional district board, by bylaw, may establish the service of regulation, storage and management of municipal solid waste and recyclable material including the regulation of facilities and commercial vehicles used in relation to those matters.

Permissive: A regional district board, by bylaw, may do one or more of the following:

require persons to use a waste disposal or recycling service, including requiring persons to use a waste disposal or recycling service provided by or on behalf of the regional district

require owners or occupiers of real property to remove trade waste, garbage, rubbish and other matter from their property and take it to a specified place

require the emptying, cleansing and disinfecting of private drains, cesspools, septic tanks and outhouses, and the removal and disposal of refuse from them

LGA s. 315

LGA s. 316

Regional district bylaw approval

Mandatory: Regional district bylaws require approval in the manner set out in Division 3, Part 5 of the CC. An establishing bylaw has no effect unless, before its adoption, it receives the approval of the inspector of municipalities and participating area approval.

Mandatory: Where a bylaw requires approval by the Province (i.e., Lieutenant Governor in Council, Minister, Inspector), the bylaw must receive three readings, obtain provincial approval/sign off, and then the bylaw is adopted.

Mandatory: Bylaws made under EMA sections 25, 26, 32 and 33 must not be adopted unless they first have written approval of the minister.

LGA ss.227 and 228

CC s. 135 and EMA s. 34

EMA section 34.

Note that EMA s. 33 allows for the making of regulations for the management of municipal solid waste, upon the request of a regional district that is not within the area of the GVS&DD. The regulations would give the regional district the authority to make bylaws prohibiting, regulating or controlling the introduction into the environment of solid waste in the area covered by the regional district’s approved plan, and would also specify terms and conditions around collection of fees.

Regional district bylaws take effect

A regional district bylaw comes into force [takes effect] as per specific provisions of the CC. CC s. 135, and 136. See also LGA ss. 338, 339, and 342.

Bylaw enforcement (and inspection) by regional districts

Permissive: A regional district may make bylaws to enforce its bylaws by fine, imprisonment, penalties and costs. Division 3 of Part 8 of the CC (Ticketing for Bylaw Offences) applies to regional districts.

LGA Part 12


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Permissive: A regional district bylaw may also be enforced by bylaw notice under and in accordance with the Local Government Bylaw Notice Enforcement Act by a regional district listed in Column 2 of Schedule 1 of that Act

Permissive: A regional district may make bylaws allowing designated persons to enter a site or inspect the contents of a vehicle for the purpose of enforcing a bylaw made under section 25(3)

EMA s. 25(3)

Reporting Tools for Regional Districts

Bylaw making authority under EMA s. 25(3) is broad and includes authority to make bylaws respecting the operation of sites, including requirements for the recording and submission of information; and audited statements respecting the municipal solid waste or recyclable material received at and shipped from a site.

A regional district board, by bylaw, may establish the service of regulation, storage and management of municipal solid waste and recyclable material including the regulation of facilities and commercial vehicles used in relation to those matters.

EMA section 25(3)

LGA s. 315

Regional districts may make use of these bylaw authorities under EMA to help close gaps between reporting on public waste disposal facilities and private waste disposal facilities.

While s. 315 is not specific to reporting, the words “regulation of facilities” may be broad enough to allow a bylaw around reporting on public and private waste disposal facilities.

Recycling Regulation The Recycling Regulation, under authority of the Environmental Management Act, sets out the requirements for product stewardship in B.C. In some cases, producers of designated products may appoint a stewardship agency to carry out their duties in accordance with an approved plan. For more information, see the Recycling Regulation website http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling.

Organic Matter Recycling Regulation

The B.C. Organic Matter Recycling Regulation (OMRR) governs the construction and operation of composting facilities and the production, distribution, sale, storage, use, and land application of biosolids and compost. It provides clear management requirements for local governments and compost and biosolids producers on how to use organic material while protecting human health and the environment. As of June 9, 2016, compost facilities that process food waste or biosolids and have a design capacity to produce 5,000 tonnes or greater of compost per year require a permit, in addition to following the requirements under OMRR. Exemptions apply to each facility that holds a Ministry-issued approval or operational certificate for that facility under an approved Solid Waste Management Plan.

For more information, see the OMMR website

http://www2.gov.bc.ca/gov/content/environment/waste-

management/recycling/organics/regulations-guidelines.

Role of municipalities in solid waste management plans

Municipalities may make liquid waste management plans under EMA, but have no authority to make solid waste management plans. Under section 8(3) of the Community Charter, a municipal council may, by bylaw, regulate, prohibit and impose requirements in a number of areas including the protection and enhancement of the well-being of its community in relation to the matters referred to in section 64. Section 64(d) of the Charter authorizes a municipal council [under the authority of section 8(3)(h)] to make bylaws respecting refuse, garbage or other material that is noxious, offensive or unwholesome.

http://www.bclaws.ca/civix/document/id/complete/statreg/03060_01

http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling

http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/organics/regulations-guidelines

http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/organics/regulations-guidelines


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F. Public Consultation

F.1. The Public Consultation Process

1. The requirement for consultation

“Adequate” consultation is a requirement for the development of a solid waste management plan.

Regional districts should be able to demonstrate that adequate consultation has occurred as follows:

The advisory committee has been involved from the start of the process, beginning at the design

stage of the consultation process

The consultation process has been inclusive of a wide range of interested parties

Interested parties (including the public) have been given ample notice of each of the consultation

opportunities through a variety of notification methods

The documentation provided sufficient information to enable the interested parties to determine how

their interests may be affected

Interested parties (including the public) have been provided with sufficient time to respond to draft

documents

The proceedings and outcomes from the consultation process have been well documented and made

available for public review, so that interested parties (including the public) are able to see how the

plan addresses their comments or issues

The ministry evaluates the consultation process through documentation in the consultation summary

report, which must be submitted to the ministry with the final draft plan. Specifically, the ministry is looking

to see that the consultation summary report includes:

1. A summary of the consultation process, with information on the advisory committee(s),

parties consulted, documents presented and the public notification process

2. A link to all consultation report(s), showing how public consultation was used to

influence the plan

3. A summary of options considered for the plan, rationale for why each option is or is not

being pursued, including the level of public support for each option

4. A summary of the plan’s potential impacts to neighbouring regional districts

5. A summary of consultations with affected parties regarding any new bylaws, or

amendments to bylaws, that will be required to implement the plan

The regional district’s Corporate Officer is requested to complete the certification form provided in Part D

of this Guide. This provides the ministry with a statement that the regional district has met public

consultation requirements and objectives.

Regional districts are experienced in consulting with their communities, and understand local nuances.

They can and should develop the consultation approach that works best for their region.

The ideas below are suggestions for consideration.


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Information versus consultation

True consultation means a commitment to listening to what is being said, and acting on this input. It is very frustrating for the

public to be told they are being “consulted” when they are really just being informed about what the regional district intends to do.

The International Association for Public Participation recognizes a scale of public engagement from simple information to full

empowerment.

Information – letting people know what you intend to do

Consultation – obtaining public feedback on options or decisions

Involvement – working directly with the public throughout the process, ensuring their ideas are consistently considered

Collaboration – partnering with the public in reviewing and selecting options

Empowerment – placing the final decision in the hands of the public

After notifying interested parties that a new solid waste management planning process has been initiated,

the planning team and advisory committee should design a public consultation process and may seek

Board approval if needed. The public consultation process should describe actions, activities and

timelines that will be implemented to ensure public consultation is adequate. An engagement strategy for

First Nations in and adjacent to the plan area should be developed as part of the consultation process to

outline an approach for sharing information and inviting participation in the preparation of or review of

plan consultation documents.

When designing a public consultation process, consider the following.

Know the audience

Every region is different. Involving the advisory committee in the design of the consultation process

will help ensure that the public’s expectations for engagement are considered

A “pre-consultation” program to inform the design of the consultation process is a value added step

that provides insight into “how” stakeholder groups wish to be engaged and ensures that

opportunities for input are tailored to the needs of the community

Set clear expectations

Be very clear about what topics are and are not within the scope of discussion

Make the consultation process clear from the outset, so that people know what to expect at each

stage and when they will have further opportunity to comment

Build trust

Create credibility for the regional district and engender trust that comments and ideas will be taken

into account during decision making

Avoid approaches that create an “us and them” atmosphere, or that polarize a community around

different viewpoints

Be authentic – listen

Listen openly—sometimes the best ideas are those that come from “outside the box”

Be prepared to change ideas and consider new options based on the input received

Be inclusive

Everyone has a right to be heard respectfully (even when there is disagreement)

http://iap2canada.ca/


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Find ways to reach people who are “not the usual suspects”; be creative and look for ways to reach

everyone

Many people have very limited time to review information—make it easy for everyone to participate,

at least a little. People are very busy. Does the process provide quick / high level ways to give input

as well as allowing for detailed submissions?

Not everyone is equally literate. Are there ways for people who have poor reading or writing skills or

speak English as a second language to contribute?

Be responsive

Provide feedback to participants with information on how their ideas were included in the final plan.

Recognize ideas that were put forward but not included, preferably with an explanation (e.g., “it was

not cost effective at this time”)

Be transparent and accountable

Make all of the information available to all of the participants—both online and in hard copy

Show how the results of consultation were taken into account

Take the time to do it right

Good consultation takes time (and money)—done well, it will prove a sound investment through

community support for the plan

2. Stages and timing of consultation

Interested parties should be provided with more than one opportunity to provide input into the plan. Table

3 lists consultation opportunities during plan development, which the regional district should consider

when developing a consultation process.

Table 3: Sample consultation process

Step Tasks

Step 1 Initiate the Planning Process

Notification

Draft initial list of interested parties

Provide public notification through advertisements in local newspaper(s) for two consecutive weeks, amplified through social media (if used)

Place information on the regional district website; encourage groups and individuals to sign up for email updates and notifications

Send emails (or letters) to interested parties, making them aware of proposed plan update and asking for suggested representatives for advisory committees

Set up advisory committees

Prepare terms of reference for advisory committees (Part F.2)

Ensure balanced participation between government, First Nation, private sector and community interests

Review and add to list of interested parties with advisory committee input

Design consultation process

Meet with First Nations to determine the best approach to engaging them

Discuss proposed planning and consultation approach with advisory committees; modify based on their input

Step 2 Set the Plan Direction

Prepare information on the current waste management system and analysis of its performance

Develop draft principles, goals and targets

Seek advisory committee input

Prepare easy-to-read materials for public comment


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Step Tasks

Public consultation on draft principles, goals and targets

Place the draft information on the website and provide a means for people to provide comment (e.g., via email, letters, online survey)

Notify the public and all other interested parties through newspaper advertisements, social media, emails to the “interested” list

Issue a media release, encourage earned media (e.g., Board member interview on local radio)

Host a public meeting or open house for people to come and learn more, and to provide their feedback and ideas

Encourage interested parties to submit ideas for options for the plan

Prepare a report with a summary of feedback received, and information on how the feedback will be used

Step 3 Evaluate Options

Develop feasible options Review with advisory committees

Public consultation on proposed options for the plan

Place the draft information and options on the website and provide a means for people to provide comment (e.g., via email, letters, online survey)

Notify the public and interested parties through newspaper advertisements, social media, emails to the “interested” list


Host a public meeting or open house for people to come and learn more, and to provide their feedback and ideas

Prepare a report with a summary of feedback received, and information on how the feedback will be used

Provide public information on which options are selected (at a minimum through a media release, information on the website and email to interested parties)

Step 4 Plan Preparation and Adoption

Prepare a draft plan Review with advisory committees

Seeks comments on the draft plan

Place the draft plan on the website and provide a means for people to provide comment (e.g., via email, letters, online survey)

Notify the public and interested parties through newspaper advertisements, social media, emails to the “interested” list


Prepare a report with a summary of feedback received, and how this influenced the final plan

Prepare report on consultation

Prepare a report on consultation for ministry review (see template in Part D)

Provide a signed certification from the regional district’s corporate office that adequate consultation has taken place (Part D)

Submit plan to ministry for review and approval

Publish and publicize the finalized report (following ministry approval and Board adoption)

Note: These consultation steps are broken down into component parts but may be combined as appropriate.


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3. Engagement techniques

There are many different ways to present information and to receive comments and input from the public

and other interested parties. The “best” method will depend on your community, the resources you have

available to conduct public engagement, and the degree of controversy in the options proposed. Table 4

lists a few of the techniques available for engaging with the public.

Table 4: Sample engagement techniques

Method Useful for Considerations

Open house

Providing information on project and options (often through information boards and short videos)

One-to-one conversations with people as they view the boards

Accommodating large numbers of people

Can provide additional detailed information on proposals in handouts

Can seek feedback through online or written surveys

Display boards should be visual for people with lower literacy skills, staffed by someone who can help to explain the content

Requires people to travel to your event and to be available at a specific time

Public meetings

Providing a presentation, with opportunity for question and answer session

Explaining concepts in more detail than can be obtained from information boards

Accommodating large numbers of people

Can provide additional detailed information on proposals in handouts

Can seek feedback through online or written surveys

Hard for shy people to stand up and get their questions answered

Needs good moderator to prevent grandstanding or individuals who monopolize the conversation


Workshops

More engaged discussion with small groups on specific questions

Can be combined with presentation(s)

Needs a venue where people can sit around small tables

Need to have a good moderator and a good recorder at each table (could be paid person or volunteer from the group)

Better at engaging quiet people, more opportunity for every participant to provide comment


By-invitation meeting

Opportunity for specific in-depth discussion with selected groups and individuals, e.g., sector-specific discussions

Good for consultation with a specific group or sector but is not open “public” engagement


Kitchen table talks

Meeting with small groups of individuals at their house, house of friend, local coffee shop—host does the invitations

Opportunity for in-depth discussion with participants

A familiar and friendly venue, will encourage some participants who would not otherwise show up

Useful for individuals with a specific interest or concern (e.g., residents close to a waste facility)

Needs to be offered widely to avoid perception of favoritism to some groups or individuals

Events

A display or other information at a public event or location (e.g., farmers market, festival), staffed by knowledgeable individual(s)

Reaches people who might otherwise not participate, but are already at that event

Needs to be engaging format to encourage passers-by to stop and find out more

Usually more limited space than a full open house display

Website Providing information and regular updates

to public and interested parties

Can provide an opt-in to an email newsletter for updates

Needs to be kept up to date


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Method Useful for Considerations

Providing a link to online surveys

Webinars

Online presentations

Can be opportunity for question and answer following

Can be recorded for later viewing

Less engaging than a personal presentation

Tends to be better at providing information on the project rather than receiving input (should be combined with an online survey or other mechanism to receive feedback)

People can participate from their home or business, view later if they choose

Web based information and surveys

Making information materials available to everyone

Linking to an online survey

Need to make sure everyone knows how to access the information

Need to avoid people ‘spamming’ the system with multiple responses from a single group or individual

Mailed information and surveys

Ensuring information goes to every household, everyone encouraged to provide input

Cost of mailing

Risk of many people just putting survey into recycling without reading the information

Needs to be written with variety of reading levels in mind

Media (radio, TV, newspapers, magazines)

Making people aware that the consultation process is open for comment; linking to the consultation website

Spreading the word on upcoming events and encouraging greater participation

Tracking comments through letters to editor and online comments

Can purchase paid advertisements

Use media releases to notify local media of upcoming events

Social media

Making people aware that the consultation process is open for comment; linking to the consultation website

Spreading the word on upcoming events and encouraging greater participation

Tracking comments; can be used to encourage online discussion using a given hashtag

Not everyone is on social media. Only reaches regular social media followers. Just because it was on social media does not mean everyone saw it.

Needs someone to manage social media accounts, respond to posts, manage “trolls” and negative input

In some circumstances a regional district will reach out to the public and other interested parties, and yet

receive very little (or no) response. The ministry will be looking to ensure that due diligence occurred in

trying to reach interested parties, but recognizes that in some cases public input may not be forthcoming.


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F.2. Advisory Committees

1. Advisory committee membership

Table 5 shows potential membership of public (and / or) technical advisory committees. The ideal makeup

and size of advisory committees may differ for each regional district, dependent on the size of the

regional district, sensitivities around solid waste management planning, and unique conditions for solid

waste management in a region.

Table 5: Membership of the Public Advisory and Technical Advisory Committees

Representatives from: Public Advisory Committee

Technical Advisory

Committee

Regional district director (one) X X

Regional district engineering / planning staff X X

Municipalities and electoral areas (engineering / planning staff) X

First Nations X

Federal and provincial agencies affected by the plan X

Organizations responsible for managing solid waste and recyclables X

Environmental organizations X

Business groups X

Consumer groups X

Large waste generators ( industrial , commercial, institutional) X

Owners / operators of private waste management facilities X

School districts X

Ratepayers associations X

Interested residents X

If the public advisory and technical committees are separate, the regional district director or staff member

should participate in both to ensure cross-pollination.

There should be a balance between technical and non-technical members of the committee(s), as well as

balance in the industry and public members.35

The committee(s) should appoint a chair from among

themselves. It is helpful to provide committee members with a package of background information, so that

everyone understands the basics of solid waste management planning and the recent history of solid

waste management in the region.

35 In reporting on consultation, the regional district should note who / what organizations were represented on the advisory committees and why this represented a fair balance.


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2. Terms of reference for advisory committees

Advisory committee members should be given a terms of reference (ToR) so that they are clear about

their roles and expectations.

The role of the advisory committees is to advise the regional district on matters pertaining to solid waste

management planning, typically including but not limited to the design and implementation of the

consultation process, the development of guiding principles, terms of reference for any planning studies,

review of reports from each planning step and the draft plan.

The regional district should establish a reporting structure for each advisory committee that ensures its

reports and recommendations are given open consideration by the regional district Board, except where

confidential material is involved.

The ToR for advisory committees should provide clear and specific information on the committee’s

purpose, how it is organized, what it is trying to achieve, who the members are, and when they meet.

Typical sections for a ToR include the following.36

Sample terms of reference for the public and technical advisory committee(s) and plan monitoring

advisory committee are provided below. These are samples only; each regional district will need to adjust

these to meet their unique needs.

36 Adapted from http://www.mycommittee.com/BestPractice/Committees/Startingacommittee/TermsofReference/tabid/251/Default.aspx. Accessed December 16, 2015

Committee Name Official name of the committee or group

Purpose and scope Describe the purpose of the committee (what the committee will do, why it was created); describe what is in and out of scope for the committee

Authority Describe the decision making authority of the committee (decides, approves, recommends, etc.)

Membership Type and number of members, how members are appointed, by whom and for what term, how the chair and co-chair are appointed, a list of members (name and functional role) what happens when members resign,

Meeting arrangements Meeting frequency and location, meeting procedures (if applicable), quorum, details about agendas and minutes (how these will be distributed, available online, who prepares them, etc.), communication between meetings.

Reporting Describe who the committee will report to, in what format, how often

Resources and budget Describe the available resources (people, rooms, equipment, etc.) available to the committee, Describe the funds available to the committee, and who has authority for spending decisions

Deliverables Describe the requested/required committee output

Review State the ToR review frequency and next review date

http://www.mycommittee.com/BestPractice/Committees/Startingacommittee/TermsofReference/tabid/251/Default.aspx


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3. Sample terms of reference for public and technical advisory

committees

Note that this may be a combined committee or two separate ones.

Name

XX Regional District Plan Public / Technical / Public and Technical Advisory Committee

Purpose and scope

The purpose of the committee is to provide input, from a variety of perspectives, on the development and

updating of the solid waste management plan (plan).

Tasks will include the following.

Representing a balance of community interests

Reviewing and providing input on reports and technical memoranda developed as part of the planning

process

Contributing to the development of the plan principles, goals and targets

Reviewing information provided by staff and consultants and providing comments and suggestions as

well as highlighting information gaps in the proposed plan

Providing input on design and implementation of public surveys and consultation processes

Reviewing current programs and identifying issues and opportunities

Assisting in developing and evaluating a variety of options and strategies for the proposed plan

Participating in public consultation, as required (for example, attendance at open houses)

Reviewing public consultation results and providing input on the final plan

Participating in smaller ad-hoc committees dealing with specific issues or tasks, as required

Ensuring that proposed programs and policies are in the best interests of all residents of the region,

balancing both community and industry needs and technical requirements

Authority

The committee makes recommendations on the proposed plan to the XXRD Board via the Solid Waste

Management Committee [or equivalent committee]. The Board is the final decision-making authority.

Membership

The committee shall consist of no more than xx members representing a diversity of backgrounds,

interests and geographical location. Membership shall include representation as follows: [assuming this is

a joint public and technical advisory committee]

Voting Members:

One representative from the Solid Waste Management Committee (or Board representative)

Up to xx members representing a diversity of community interests such as from the following groups:

Private sector waste management service providers

Private sector solid waste facility representatives

Non-profit group with an interest in solid waste management (e.g., reuse organization)

Large institutional solid waste generator

Business representatives, including one focused on the 3 Rs

Members at large for the community (community association, youth, senior)


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Regional Landfill Advisory Committee / Regional Landfill area representative

Urban / rural geographic mix

Non-Voting Technical Advisors:

Up to xx members representing agencies including:

Regional District Staff

Municipal Staff

First Nations

Provincial Agencies (e.g., local health authority)

Federal Agencies

The committee will serve until the completion of the updated plan.

Meeting arrangements

The Chair and Vice-chair are elected from amongst the voting membership.

The committee will meet monthly or at the call of the chair. Meetings will take place at the XXRD

Boardroom unless otherwise specified. Members are expected to attend in person unless

arrangements are made to participate by phone or online (e.g., via Skype).

Quorum shall be a minimum of xx voting members [usually 50% plus one].

Staff are responsible for taking minutes. Draft minutes are approved by the committee at its next

meeting, and then forwarded to the Solid Waste Management Committee for information.

Staff will prepare agendas in consultation with the Chair and Vice-chair. Agendas will be posted on

the XXRD website.

All committee members are equal and have equal opportunity to contribute at meetings, and must

respect the opinions of others.

Members are encouraged to work collaboratively and to be committed to reaching consensus where

possible, taking into account the best interests of the community. Any members unable to agree with

the decision may have their objections noted in the minutes.

Members who miss three consecutive Committee meetings may have their membership revoked at

the Board’s discretion.

Members must declare any real or perceived conflict of interest. The member involved should excuse

themselves from proceedings that relate to the conflict unless explicitly requested to speak, on a

majority vote to do so. Any subsequent information provided by the individual will clearly be identified

in the minutes as coming from a source perceived to be in a conflict of interest.

Regular communications between meetings is by email or other accepted form of communication

Members of the public may observe meetings but will not have voting rights or speaking rights unless

invited to speak by the Chair.

Reporting

The committee reports to the Solid Waste Management Committee. Meeting minutes are provided to the

Solid Waste Management Committee and the Solid Waste Management Committee liaison is expected to

provide regular updates to that Committee.

Resources and budget

XXRD provides the meeting space and any refreshments, and staff to take minutes.

Participation in the committee is voluntary and there is no remuneration for members’ time. Travel

assistance, if required, is provided for members travelling more than xx km to meetings, following the

XXRD travel guidelines.


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Deliverables

The Committee shall provide:

(specify)

Review

The terms of reference will remain in place until the task is completed. Any changes to the terms of

reference must be approved by the Board.

4. Sample terms of reference for plan monitoring advisory committee

Name

XX Regional District Plan Monitoring Advisory Committee

Purpose and Scope

The purpose of the Plan Monitoring Advisory Committee is to advise the XXRD Board and staff with on

the implementation of the Solid Waste Management Plan (plan). Tasks include:

Reviewing information related to implementation of the plan, including waste quantities, populations,

and diversion rates for each plan component

Advising on each major plan review which will occur every five years

Providing recommendations regarding disputes arising during implementation of the plan that pertain

to:

interpretation of a statement or provision in the plan, or

any other matter not related to a proposed change to the actual wording of the plan or an

operational certificate

Ensuring adequate public consultation in matters affecting the public, such as landfill siting and

transfer station siting

Reviewing new facility applications and making recommendations to the Board

Authority

The committee makes recommendations to the XXRD Board via the Solid Waste Management

Committee. The Board is the final authority on decisions.

Membership

The committee shall consist of no more than XX members appointed by the XXRD Board. Membership

shall include representation of the various interests as follows:

Member of the XXRD Solid Waste Management Committee (non-voting)

xx members of staff of the XXRD (non-voting)

One representative from each of the member municipalities and one member from each electoral

area

One representative from each of the First Nations

One person with experience in the recycling business

One person with experience in public education relating to solid waste management

One person with experience in the collection and management of solid waste

One person involved with the operation of solid waste facilities


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One person with experience in the recovery of resources from solid waste

One member of a local environmental group with interests in solid waste

xx members of the general public

Memberships are for one-year [or two-year] periods, and may be renewed for up to xx additional terms.

(Membership should be staggered for two-year terms.)

Meeting arrangements

The Chair and Vice-Chair are elected annually from amongst the voting membership.

The committee will meet monthly [bi-monthly, quarterly], or at the call of the chair. Meetings will take

place at the XXRD Boardroom unless otherwise specified. Members are expected to attend in person

unless arrangements are made to participate by phone or online (e.g., via Skype).

Quorum shall be a minimum of xx voting members [usually 50% plus one]

Staff are responsible for taking minutes. Draft minutes are approved by the committee at its next

meeting, and then forwarded to the Solid Waste Management Committee for information

Staff will prepare agendas in consultation with the Chair and Vice-chair. Agendas will be posted on

the XXRD website.

All committee members are equal and have equal opportunity to contribute at meetings, and must

respect the opinions of others.

Members are encouraged to work collaboratively and to be committed to reaching consensus where

possible, taking into account the best interests of the community. Any members unable to agree with

the decision may have their objections noted in the minutes.

Members who miss three consecutive Committee meetings may have their membership revoked at

the Board’s discretion.

In any proceeding, members must declare any real or perceived conflict of interest. The member

involved should excuse themselves from proceedings that relate to the conflict unless explicitly

requested to speak, on a majority vote to do so. Any subsequent information provided by the member

will clearly be identified in the minutes as coming from a source perceived to be in a conflict of interest.

Regular communications between meetings is by email or other acceptable form of electronic

communication.

Members of the public may observe meetings but will not have voting rights or speaking rights unless

invited to speak by the Chair.

Reporting

The committee reports to the Solid Waste Management Committee. Meeting minutes are provided to the

Solid Waste Management Committee and the Solid Waste Management Committee liaison is expected to

provide regular updates to that Committee.

Resources and budget

XXRD provides the meeting space and any refreshments, and staff to take minutes. Funds for any projects

are from the Solid Waste Management Plan budget and subject to normal budgetary review and approvals.

Participation in the committee is voluntary and there is no remuneration for members’ time. Travel

assistance, if required, is provided for members travelling more than xx km to meetings, following the

XXRD travel guidelines.

Deliverables


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The Committee shall provide:

An annual report to the Solid Waste Management Committee on the implementation of the plan

Recommendations to the Board (via Committee) on changes required to the plan implementation

Review

The terms of reference will be reviewed every year and updated as required. Changes to the terms of

reference must be approved by the Board.


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G. Solid Waste Management Planning

G.1. Roles and Responsibilities for Solid Waste Management Planning

Many different people and organizations are involved in the development and implementation of a solid

waste management plan. A successful plan will include participation and collaboration among all of these

groups and individuals (see Table 6).

Table 6: Roles in solid waste management planning

Who Roles in Solid Waste Management Roles in development of Solid Waste Management Plan (“plan”)

Minister of Environment (Minister)

Has mandate to protect the environment, human health and public interest

May set provincial targets and policies for management of solid waste and recyclable materials in B.C.

Approves bylaws made under the authority of EMA

Approves the plan (with or without conditions)

[or] Does not approve plan and sends back to regional district

Has authority to cancel or amend a plan

Ministry of Environment (staff)

Develop municipal solid waste (MSW) management policy in consultation with stakeholders

May provide tools to support local governments on plan implementation

Ensure compliance with plan, operational certificates, permits and regulations

Report the provincial MSW disposal rate

Work with product stewardship producers and agencies to review and approve stewardship plans and annual reports

Ensure compliance with Recycling Regulation and product stewardship plans

Monitor stewardship plan implementation to inform five-year plan renewals

May advise regional district staff on plan development

Do not normally participate in advisory committees or provide technical advice (exceptions may be made)

Review plan checklist, the plan and supporting documentation to ensure the planning process and the plan meet policy and legislative requirements; make recommendation to minister

Regional District (Board - may be represented by Solid Waste Management Committee and staff)

Develop plan to provide big picture oversight of waste management in the region; advocate / ensure that region has access to waste management services that are environmentally sound and cost effective

Explore opportunities for inter-regional cooperation (services, facilities, awareness, etc. as appropriate)

Oversee implementation of plan through bylaws, licensing, programs (e.g., education, bans), zoning, local enforcement

Work to meet waste disposal goals and targets, moving up the pollution prevention hierarchy

Report annual MSW disposal rate to ministry

Ensure that legislative and policy requirements are followed

May operate facilities/collection system (provide service)

Support extended producer responsibility programs in jurisdiction (feedback, cross-promotion, facilitation, hosting, etc. as appropriate)

Demonstrate application of 5 Rs within own

Lead the development of the plan (including consultation process), directly and / or through consultants

Establish and participate in advisory committees

Submit plan and supporting documentation to the minister; adopt the approved plan and any conditions imposed by the minister

Responsible for plan implementation (monitoring / public reporting / compliance promotion activities / renewal / amendments)


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operations

Municipalities (council and staff)

May provide / coordinate waste management service, or own / operate facilities

Influence waste management planning and contribute to plan goals and strategies through bylaws

Municipal enforcement officers part of enforcement team

Should be an active participant in development of updated plan

Important partner in plan implementation

First Nations May provide waste management services

Through servicing agreements, may use solid waste management system in the region

May be an active participant in development of updated plan


Advisory Committee members

Committee may support board with recommendations to address plan implementation issues

Active participants in plan development and consultation process

Assist in design of consultation process

Review materials and reports produced to support plan development

Collectively, represent a variety of interests and viewpoints

Help to monitor plan implementation


Provide free and reasonable access to recycling of stewarded products, sometimes with local government as collection or service provider (collection facility; curbside)

Aim to increase consumer convenience/participation with multi-product collection facilities

Provide education/promotion to increase product recovery or may fund local government delivery

Provide deposit refunds to consumers (where applicable)

Monitor / report on diversion/recovery rates

Seek local government decisions to support facility siting / zoning

Seek product recovery from local government facilities as appropriate


Important contributor to achieving plan targets

Private sector involved in waste management (e.g., haulers, facility operators)

May provide recycling and waste management services, generally for multi-family residential buildings, ICI sources and CRD sectors

May own / operate facilities

Successful reduction of these waste streams (through diversion) is a significant driver of regional waste disposal trends

Major source of innovation in the sector (driven primarily by economic considerations)

May be regulated by local government but mostly operate in the free market



Interested parties (including general public)

Responsible for waste reduction and prevention through purchasing habits

Target of education and other behaviour change strategies to reduce waste and increase product reuse and recycling

Should be provided with ample opportunity to comment on and influence development of updated plan

Other regional districts May import / export waste

May partner to share facilities and/or programs across several jurisdictions where system efficiencies can be found

Should be notified of development of updated plan and provided with opportunity to comment

May collaborate on shared or consistent plans


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G.2. Steps in Solid Waste Management Planning

Table 7: Steps in solid waste management planning

Step 1: Initiate the Planning Process For more

information, see Guide Section

Initiate the plan update Regional District Board resolution to initiate the planning process

Identify the plan area

Identify scope of work

Notify interested parties and the ministry

B.1.1

Establish planning team and committees

Establish the planning team

Establish advisory committee(s)

B.1.2

Design consultation plan Design the consultation process

Public advisory committee provides input into the design of the public consultation process

Ensure public consultation requirements will be addressed

B.1.3

Develop the budget Develop budget for planning process B.1.4

Step 2: Set the Plan Direction

Identify principles, goals and targets

Establish locally relevant guiding principles, goals and targets that are complimentary to provincial principles, goals and targets.

B.2.1

Prepare background information

Assemble information on the region’s population and growth, and pertinent social and economic trends

B.2.2

Assess the current solid waste system

Describe and analyze the current waste management system B.2.3

Consider trends that are impacting solid waste management

Look at industry trends

Build upon momentum related to greenhouse gas reduction targets, circular economy, and zero waste approaches

Consider local factors that are impacting solid waste management

Identify challenges and opportunities

B.2.4

Consult the public Seek input from advisory committees, the general public and all other interested parties

B.2.5

Step 3: Evaluate Options

Develop potential strategies Identify a full range of possible strategies to achieve the targets

Consider the practicality and benefits/challenges of these strategies

B.3.1

Assess the financial and administrative impacts

Consider the financial and administration impacts of the solid waste management system, including the new proposals

B.3.2

Consult the public on the options

Conduct a public consultation process that allows ample opportunity to provide input

B.3.3

Stage 4: Plan Preparation and Adoption

Prepare draft plan Confirm preferred strategies with advisory committees

Prepare draft plan

Review draft plan with advisory committees, adjust as needed

B.4.1

Consult the public Make draft plan available for public comment

Revise plan with public input and consult again if needed

B.4.2

Prepare plan for submission Share with ministry regional staff as appropriate

Prepare consultation summary report and complete checklist

Corporate Officer signs certification form

Submit draft plan package to Board for their review

B.4.3


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Submit to minister for approval

Ministry review and approval B.4.4

Board adoption Following ministry approval, Board formal adoption of the final plan, including any conditions

Make the final plan and any conditions publically available, including on regional district website

B.4.5

Implementation and Monitoring

Implement the plan Ensure operating certificates and licences are in place

Establish a plan monitoring advisory committee

C.1

Prepare annual reports Make reports available to public C.3.2

Monitor the plan, submit five-year review

Adjust the plan as needed to meet goals and targets C.3.1, C.3.3


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G.3. Checklist for Plan Review and Approval

The following checklist can be used by the regional district and corporate officer to ensure due diligence in meeting legislated

requirements and recommendations provided through the Guide. The checklist includes specific requests for rationale regarding

information included in the plan. If answering no (N) or not applicable (NA) to any of the evaluation questions below, regional

districts are also asked to provide an explanation.

Table 8: Checklist for review and approval of plans

Evaluation questions Y/N/NA

A. Plan Submitted to Minister for Approval

Does the package submitted include:

1. An electronic copy of the solid waste management plan (final draft as approved by the Board)

2. Documentation of the regional district approval process (Board resolutions)

3. Signed certification from the regional district corporate officer that the consultation process has been adequate

4. A consultation summary report that outlines the consultation and planning process

5. Endorsement letters indicating support for the plan from participating municipalities, and as necessary from First

Nations and neighbouring regional districts

6. A completed checklist (this document)

B. Plan Content – General

7. Does the plan contain locally relevant guiding principles?

If your guiding principles differ from the guiding principles suggested by the ministry, please describe, including rationale for

any changes, additions or deletions

8. Does the plan identify regional goals and targets that are time bound and show continuous improvement for the

region?

Describe your rationale for choosing the regional goals and targets and explain how they will help achieve provincial targets

9. Does the plan follow the 5 Rs pollution prevention hierarchy or substitute a similar hierarchy?

If a different hierarchy is used, please provide rationale

10. Does the plan identify drivers for its development (i.e., current challenges and opportunities for regional MSW

management)

11. Does the plan include an analysis of efficiency / consistency opportunities with other regional districts and any

options that have been pursued?

12. Does the plan include a map and description of the plan area, including:


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a. The location of disposal facilities and organics processing facilities that are to be approved under the

plan (within the regional district and externally)

b. The location of non-disposal facilities

c. The location of any closed landfills / dumps that have previously existed in the plan area

13. Does the plan contemplate new facilities for management of MSW and describe a process for the development of

new facilities?

14. Does the plan describe MSW disposal trends and waste characterization information for the region?

15. Does the plan identify roles and responsibilities for municipalities, First Nations, other regional districts, the private

sector, the not-for-profit sector, etc.?

16. Does the plan include management strategies for each component of the waste stream/tier in the pollution

prevention hierarchy?

a. Do the plan strategies describe promotion and education programs?

b. Do the plan strategies identify any actions requested of local governments?

c. Do the plan strategies identify external programs or private sector contributions, and where applicable,

identify how local government can provide support?

d. Does the plan include a risk analysis of not fulfilling strategies

17. Do the plan’s financial strategies:

a. Address cost recovery?

b. Include a triple bottom line analysis for sites and programs?

c. Follow the user-pay principle to the highest level practical?

d. Depict the cost of plan elements as the monthly cost to homeowners, as well as the total cost?

e. Identify capital projects and their costs where borrowing is anticipated?

18. Are the environmental, social or economic impacts of the plan clearly laid out?

19. Does the plan include provisions for monitoring and evaluating plan effectiveness?

20. Does the plan include provisions for a dispute resolution procedure?

21. Does the plan include an implementation schedule that identifies when plan targets will be achieved?

C. Consultation Summary Report

22. Does the consultation summary report include:

a. A summary of the consultation process, with information on the advisory committee(s), parties


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consulted, documents presented and the public notification process

b. A link to all consultation report(s), showing how public consultation was used to influence the plan

c. A summary of options considered for the plan, rationale for why each option is or is not being pursued,

including the level of public support for each option

d. A summary of the plan’s potential impacts to neighbouring regional districts

e. A summary of consultations with affected parties regarding any new bylaws, or amendments to bylaws,

that will be required to implement the plan

23. Does the plan clearly identify implementation provisions in sufficient detail to enable those affected by the

provisions to determine their impact?

24. Is there a process in place for adequate public review (and minister’s approval) of the implementing bylaws,

licences and other authorizing provisions?

25. Has provision been made for a reporting mechanism on the success / failure of the implementation provisions?

26. Does the plan include schedules with descriptions of steps to be taken to update these schedules (maintain as a

living document)?

27. Does the plan include provisions for annual (or biennial) reporting, a five-year effectiveness review, 10-year

renewal of plan, and a compliance promotion strategy?

Regional district

Date reviewed

MoE Reviewer

For all evaluation questions where No (N) or Not Applicable (NA) were indicated, please provide an explanation:

Question # Explanation


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G.4. Operational Certificates and Licences

1. Operational certificates

In the letter approving the solid waste management plan (plan), the minister will direct the regional district

to consult with the regional operations branch of the Ministry of Environment in the finalization of the

necessary operational certificates (OCs). OCs are the authorization(s) for existing and future municipal

landfills, waste-to-energy facilities and possibly other waste management facilities.

The approval of OCs will be based on the detailed operating and environmental protections measures for

the solid waste management facilities specified in the plan. Amendments to an OC may require an

amendment to the plan requiring minster approval. It is thus important to achieve the right balance

between ensuring the site will be operated in accordance with standards agreed to in the approval

process and providing sufficient flexibility to make minor changes easily. The plan, together with the

required OCs, will form the basis of the authority to operate these facilities.

2. Licences

The Environmental Management Act provides regional districts with the authority to create bylaws to

better manage municipal solid waste and recyclable materials. A regional district has the ability to issue a

number of different licences, under the authority of a bylaw made under subsection 25(3)(h)(i). Three

licences identified in the Environmental Management Act are:

Waste Stream Management Licence

Hauler licence

Recycler licence

These licences can be used by regional districts as a tool for achieving operational and administrative

jurisdiction over sites, facilities and haulers managing recyclable material and municipal solid waste.

Licences incorporating a results based approach may incentivize regulated parties to develop innovative

market solutions to meet specified outcomes. Part E of this Guide discusses the WSML bylaw enabling

authority for regional districts with approved plans.


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G.5. Dispute resolution procedures

The following information is provided to help regional districts prepare for disputes that may arise during plan development as

well as plan implementation.

Every regional district should follow best consultation practices so as to avoid or minimize potential

disputes. Although consultation efforts may prevent or minimize conflicts, at times disputes may arise

during development or implementation of the plan and regional districts should be prepared to quickly and

equitably resolve any conflicts that may arise. To this end, regional districts should establish dispute

resolution procedures to address any complaints or concerns that occur during plan development or

implementation. Different procedures may need to be designed for different circumstances. The

information provided in this appendix is provided as general guidance and information, and ultimately

regional districts should be prepared to respond to circumstances that may arise in relation to the solid

waste management plan for their area. In addition, regional districts are advised to be aware of provisions

contained in the Local Government Act, the Community Charter, and / or other legislation that may apply

in some scenarios, such as services. For such cases, please refer to guidance available from the

provincial ministry responsible for community services.

It is important for regional districts to promote effective solid waste management planning that

encourages cooperation and coordination and which considers dispute prevention and resolution

methods to resolve disputes at the earliest possible stage. Regional districts should ensure that any

disputes that do arise are resolved quickly (within reasonable timelines) and fairly, preferably by the

parties themselves. Cooperative resolution of disputes can increase commitment to the resolution,

achieve mutual gain, support effective implementation of the resolution, and preserve relationships.

Resolutions should be viable, long-lasting and conclusive.

The following elements are helpful considerations when considering approaches to a conflict resolution

scenario:

Access: that appropriate options for preventing conflicts and resolving them at every stage of a

dispute be available and easily accessible

Community participation: that conflict resolution resources exist within various communities and

that these communities, in appropriate circumstances, assume an active role in resolving disputes

Individual satisfaction: that dispute resolution options maximize individual involvement and

satisfaction with the process

Equality: that dispute resolution processes be structured to balance power inequities between the

parties

Quality of resolutions: that settlements be fair and equitable and that the parties honour them

Efficiency: that dispute resolution options:

be well-matched to the dispute

be cost-effective

minimize delay in reaching resolution

Awareness:

that the public be aware of alternative dispute resolution options

that individuals understand how co-operative approaches to dispute resolution work

Additional dispute resolution resources are also available at the Ministry of Attorney General’s Dispute

Resolution Office website at www.ag.gov.bc.ca/dro/.

http://www.ag.gov.bc.ca/dro/


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A plan’s dispute resolution procedures should be reviewed by the advisory committee(s) during the plan

development process. The dispute resolution procedures should be attached to the plan as a Schedule

for convenient reference if / when necessary. Note that the Ministry of Environment is not involved in

resolving or making a decision on any dispute related to implementation of a regional district solid waste

management plan.

A suggested dispute resolution procedure to assist regional districts in creating their own procedure is

provided below.

Example Dispute Resolution Procedure

This dispute resolution procedure may apply during plan development as well as to the following types of

conflicts that could arise during plan implementation:

Administrative decisions made by regional district staff

Interpretation of a statement, bylaw, policy or provision in the plan

Any other matter not related to a proposed change to the wording of the plan or an OC.

The following principles will be followed:

i. The parties will make all reasonable efforts to attempt to resolve the dispute in an amicable

manner without outside intervention

ii. Disputes will be attempted to be resolved as early and at the lowest administrative level as

possible; every effort will be made to avoid disputes requiring a formal resolution process

iii. The formal process is not intended to deal with inconsequential or frivolous disputes

iv. The cost of mediation or adjudication will be shared by the parties to the dispute

v. Information or data related to the dispute will be shared by the parties

vi. Rules of confidentiality and freedom of information will apply

Disputes will be settled using the following procedure:

Negotiation

Parties involved in the dispute shall make every effort to resolve the

dispute on their own through non-facilitated communication. If necessary,

the parties will provide each other with a written summary of their position

and any relevant supporting documentation

Parties may agree to make use of a facilitator

If this is unsuccessful

Plan Monitoring

Advisory Committee

(if appropriate)

Parties involved in the dispute will have opportunity to speak to the

Committee

Committee will review, consider and provide recommendations to the

Board


Board

Parties involved in the dispute will have opportunity to speak to the Board

Board will receive recommendations from the Committee and settle the

dispute; or, recommend mediation


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If the board is unable to settle the dispute

Mediation A neutral, impartial third party facilitator who is acceptable to all the parties

to the dispute will be selected. Using appropriate mediation techniques, the

facilitator will attempt to develop a solution which satisfies all parties. The

facilitator has no decision making authority. If the parties cannot agree on

a mediator, the matter shall be referred to the BC Mediation Roster Society

or equivalent roster organization for selection of a mediator.

All efforts will be made to reach an agreement through mediation

Costs for mediation will be shared by the parties in dispute


Independent arbitrator If the dispute cannot be resolved by a mediator, the matter will be referred

to arbitration and the dispute will be arbitrated in accordance with the any

applicable legislation. A neutral, impartial third party arbitrator who is

acceptable to all the parties to the dispute will be selected. The arbitrator

hears each party’s evidence and arguments and renders a final, binding

decision.

Costs for arbitration shall be apportioned at the discretion of the arbitrator


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H. Considerations for Developing and Evaluating Strategies

H.1. Sample Solid Waste Management Strategies

1. Introduction

In developing potential and preferred waste management strategies for the region, the planning team may

want to explore some of the strategies listed below or may find ideas and inspiration from other

jurisdictions and through engaging interested parties in the region. The strategies below are organized by

the pollution prevention hierarchy and should not be considered an exhaustive list. Related case studies

and other resources may be found on the ministry’s website.37

Apart from the ministry’s expectation to

maximize strategies to reduce, reuse, and recycle, the ministry has no preference for certain strategies—

these should be explored and adopted to best suit the regional context and local goals and targets.

2. Reduction and reuse

Waste prevention strategies fall into three major categories:

1. Informational strategies, aimed at changing behaviour and informing decisions:

Public awareness campaigns such as encouraging consumers to “gift experiences rather than

things” (e.g., Metro Vancouver’s “Create Memories not Garbage”), utilize second-hand, rental and

repair businesses, participate in the sharing economy, increase bulk buying (instead of buying

packaged products), etc.

Emphasizing where actions to reduce/ reuse waste can help reduce greenhouse gas emissions

Commercial, retail and industrial education, including technical / financial assistance education

programs

Information on waste prevention techniques (see Residential Food Waste Prevention Toolkit38)

Leadership through in-house programs such as employee education; increased use of electronic

documents; double-sided copying and printing and only when necessary; decreased use of non-

recyclable paper, use of cloth towels or electric hand dryers in rest rooms; and where packaging

is required in food operations, using only reusable and recyclable containers

Awards, labelling, accreditation and other forms of public recognition

School curricula

Repair cafés

2. Incentive programs, encouraging behaviour change through providing financial and logistical

support for beneficial initiatives:

User-pay programs, including volume- or weight-based garbage collection rates

Increased and / or variable tipping fees at disposal sites

Tax exemptions for food donations

37 http://www2.gov.bc.ca/gov/content/environment/waste-management 38 http://www2.gov.bc.ca/assets/gov/environment/waste-management/recycling/organics/resources/food_waste_reduction_toolkit.pdf

http://www2.gov.bc.ca/gov/content/environment/waste-management

http://www2.gov.bc.ca/assets/gov/environment/waste-management/recycling/organics/resources/food_waste_reduction_toolkit.pdf

http://www2.gov.bc.ca/assets/gov/environment/waste-management/recycling/organics/resources/food_waste_reduction_toolkit.pdf


95

Encouraging businesses to implement incentives (e.g., fee for plastic bags at retail outlets, fee for

paper coffee cups at coffee shops/reduced price for using personal mug)

House moving / construction material reuse incentives

3. Regulatory strategies, enforcing limits on waste generation, expanding environmental obligations

and imposing environmental criteria on public contracts:

Procurement standards for local government purchases—including durability, reusability,

recyclability, and recycled material content

Banning the acceptance at disposal sites of certain materials for which there are appropriate

alternatives

Increased fines for illegal dumping

Reducing the flow into the plan area of non-refillable and non-recyclable containers and of

products with excessive packaging into the plan area, and enlisting cooperation and coordination

among adjacent jurisdictions for even greater effect

Encouraging or mandating waste audits in the ICI sector

User pay for demolition of buildings that need no demolition

Requiring the use of clear garbage bags

3. Recycling

Products regulated39

under the Recycling Regulation are managed by industry-led product stewardship

programs. Regional districts and member municipalities may participate in or assist a product stewardship

program by:

Providing input during the consultation phase on draft product stewardship plans

Providing facilities or operational services as a service provider at a landfill or other local site for

product collection or processing

Helping to inform the public that the stewardship program is available

Assisting the producer or agency with local land use / zoning and business licence issues relating to

collection and processing facilities

Imposing landfill disposal bans on regulated products

Providing input on the operations of product stewardship programs

Facilitating collaboration between stewards at a regional level to improve servicing (i.e., stewards

coordinating transportation and collection logistics to improve servicing in rural areas; co-locating

collection programs; cooperative marketing / promotion)

Partnering with product stewardship producers and agencies on waste composition studies at landfills

and sharing data related to regulated products

Product stewardship programs may participate in or assist solid waste management planning by:

Providing input during the consultation phase(s) on draft solid waste management plans

Providing facilities or operational services for product collection

Providing tailored marketing and education to the public that links to regional solid waste

management goals and targets

39 For more information, including products currently regulated, see http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/product-stewardship




96

Identifying local land use and business licence issues relating to collection and processing facilities

Working with other stewards at a regional level to improve servicing, e.g., stewards coordinating

transportation and collection logistics to improve servicing in rural areas, co-locating collection

programs, cooperative marketing / promotion)

Carrying out waste composition studies at landfills and sharing data

Through discussions and relationship building with product stewardship programs, regional districts may

determine which of the above strategies are appropriate to consider for their area.

Other recycling strategies may include:

Building code requirements for provision of recycling services in multi-family buildings

Working with product stewardship producers and agencies to provide recycling receptacles (clearly

marked) at the streetscape and encouraging them in commercial / retail buildings

Facilitating non-EPR recycling in the ICI and CRD sectors

4. Organics management and processing

A major class of solid waste which should be given considerable attention is organic material40

, including

kitchen scraps, yard and most land clearing debris, some paper, food processing residues, and some of

the wood in demolition and construction debris. This class alone can account for 30–35 % by weight of

the solid waste stream. Its diversion would simplify management of the remainder, especially regarding

its bulk, attractiveness to wildlife, impact of leachate on soil and groundwater quality, and generation of

landfill gas.

Organics management strategies may include:

Encouraging citizens to become responsible for their own organic wastes through backyard

composting (may be considered a waste reduction strategy as that material never enters the solid

waste or recycling streams)

Food waste prevention campaigns

Diverting organics from landfills to other value added facilities using circular economy approaches

Curbside organics collection service (green bin programs)

Central composting facility (public or private) and / or collaboration with neighbouring jurisdictions in

the sharing of facilities

Community benefit agreements to overcome barriers to establishing composting facilities

Organics bans at disposal facilities

End market identification/development

40 See http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/organics

http://www2.gov.bc.ca/gov/content/environment/waste-management/recycling/organics


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5. Resource recovery

At this level of the pollution prevention hierarchy, the following strategies could be considered:

Waste-to-energy facilities41

Mixed waste material recovery facilities (producing recyclables from the waste stream through the

application of technology42

)

Production of refuse-derived fuel

Integrated Resource Recovery43

(includes heat and energy recovery from organics processing and

liquid waste facilities).

6. Residual management

Disposal of materials to a landfill or other facility is the least preferred management option in the pollution

prevention hierarchy after reduce, reuse, recycle and recovery options have been exhausted. However,

even with high diversion rates it is expected that landfills will continue to remain an important component

of solid waste management system in order to manage the wastes that cannot be practically removed

from the waste stream.

Landfills should be carefully designed and managed to minimize risks to the public health and safety and

to ensure environmental protection. The “Landfill Criteria for Municipal Solid Waste” guidance document44

provides standards for siting, design, construction, operation and closure of Municipal Solid Waste (MSW)

landfills.

Cooperation with another solid waste management agency can be beneficial, through sharing the high

financial cost, taking advantage of economies of scale, and / or responding to geographic proximity

factors.

7. Supporting activities

A regional district may incorporate certain preferred strategies into a solid waste management plan with

the caveat that further research or evaluation of the strategy takes place. The study itself may become a

strategy that is listed in the plan and have a specific budget and implementation schedule associated with

it.

Knowledge of the weight and nature of the solid waste requiring disposal is essential, not only for setting

priorities for future higher level management strategies, but for evaluating the effectiveness of the plan in

meeting its waste disposal target(s). Strategies (and associated budgets and implementation schedules)

may be included in a plan for carrying out waste characterization studies and for collecting better waste

disposal data (e.g., installing weigh scales at transfer stations and disposal sites).

41 For more information on the ministry’s policy, see http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/waste-to-energy 42 The ministry will evaluate proposed use of MWRR facilities on a case by case basis with respect to the pollution prevention hierarchy. In some cases, these facilities could be determined as a recycling strategy. 43 See http://www.cscd.gov.bc.ca/lgd/infra/resources_from_waste.htm 44 http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/landfills/landfill-criteria-for-municipal-solid-waste

http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/waste-to-energy

http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/waste-to-energy

http://www.cscd.gov.bc.ca/lgd/infra/resources_from_waste.htm

http://www2.gov.bc.ca/gov/content/environment/waste-management/garbage/landfills/landfill-criteria-for-municipal-solid-waste


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H.2. Evaluation Criteria Considerations Possible evaluation considerations for selecting a solid waste management plan strategy, policy measure

or waste management service solution include, but are not limited to the following:

(a) General considerations

Alignment with existing or proposed provincial strategies and initiatives

Key objectives and stages of the material life cycle that will be targeted

The potential of a policy / waste management service solution for significant waste stream reduction

Potential challenges administrating policy once introduced

Compatibility with approaches taken by other jurisdictions (if applicable)

Opportunity for public-private partnerships45

Level of flexibility for target audience to meet policy requirement (e.g., prescriptive, outcome-based or

a blend)

Flexibility to adapt policy to changing circumstances over time

Risk of failure

(b) Environmental considerations

Facility discharges to the environment (level of associated environmental risk)

Associated direct environmental benefits (e.g., greenhouse gas reductions, land productivity and soil

health, air and water quality benefits, etc)

Associated ancillary environmental benefits (e.g. upstream resource efficiency from waste prevention,

use of recycled content vs virgin materials, etc)

Linkages to the pollution prevention hierarchy and prioritization of the first 3 Rs

(c) Economic considerations

Associated direct economic benefits (e.g., regional / provincial employment, revenues)

Associated ancillary economic benefits (e.g. consumer savings)

Available recycling infrastructure and end-markets for recovered materials as well as associated

market conditions (e.g., commodity prices)

Transportation costs and means of reducing transportation costs (e.g., subsidies, storage /

accumulating of marketable quantities, intermediate processing, cooperation with other jurisdictions)

Time, cost and sustainable financing to introduce and maintain the policy

Associated savings and costs to government, producers, recyclers, taxpayers and consumers

compared to alternatives

Fairness and equity regarding the distribution of accrued costs and benefits

Potential trade barriers and discriminatory practices

Potential impacts on domestic and foreign investment

Potential influence on domestic and international industry competitiveness (e.g., market distortions)

(d) Social considerations

45 For further information, see http://www.partnershipsbc.ca/pdf/An%20Introduction%20to%20P3%20-June03.pdf

http://www.partnershipsbc.ca/pdf/An%20Introduction%20to%20P3%20-June03.pdf


99

Associated direct social benefits (e.g., increased public awareness, community buy-in / support)

Associated ancillary social benefits (e.g. education benefits beyond specific initiative)

Creation of low-barrier workforce opportunities/training

Likelihood to stimulate continual improvement

Ability to create opportunities for new partnerships

Opportunities for collaboration with neighbouring regional districts (e.g., in the collection of data or

sharing of facilities)

Opportunities for increased private sector involvement and benefit to the region (e.g. support start-

ups and entrepreneurs)

Ability to raise public awareness regarding benefits

Perceived stakeholder support for the policy

Time for the policy to stimulate behavioural changes once introduced


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Index

advisory committee ................................................................................................. 7, 20, 22, 25, 40, 61, 70, 76, 83, 85

amendment ............................................................................................................. 6, 14, 15, 34, 42, 43, 49, 54, 66, 90

approval ......................................................................................................................................... 14, 15, 33, 36, 87, 90

bylaw ....................................................................................................................................... 15, 34, 38, 39, 40, 57, 89

Compliance .......................................................................................................................................... 39, 41, 47, 53, 83

dispute resolution ............................................................................................................................................ 35, 39, 91

First Nations ............................................................................................................................................... 22, 23, 24, 71

greenhouse gas .......................................................................................................................................... 12, 41, 51, 94

guiding principles ............................................................................................................................................. 16, 27, 47

interested parties ...................................................................................................................... 8, 17, 21, 24, 70, 72, 74

legislative requirements ........................................................................................................................................ 14, 36

licence ...................................................................................................................................................... 8, 9, 10, 38, 90

living document ..................................................................................................................................................... 54, 89

ministry staff .......................................................................................................................................................... 23, 36

municipality ........................................................................................................................................... 8, 15, 22, 31, 50

operational certificate ..................................................................................................................................... 15, 67, 90

pollution prevention hierarchy .................................................................................................. 8, 12, 13, 16, 40, 47, 97

private sector ................................................................................................................................... 8, 12, 17, 22, 30, 99

product stewardship .................................................................................................................................... 8, 22, 69, 95

public consultation ..................................................................................... 15, 21, 24, 32, 36, 43, 59, 62, 63, 70, 72, 74

regional Director ............................................................................................................................................................ 9

reporting .......................................................................................................................................................... 40, 53, 69

targets ........................................................................................................................................................ 17, 27, 31, 47

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